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JASUARI fr, 1890. 








JANCAET 6, 1890. 









Gentlemen of the City Council: — 

The circumstances under wbich we begin the 
City Government of 1890 place upon us unusual 
responsibilities. Unless I misjudge public opin- 
ion, we shall be watched more closely than were 
our predecessors. The voters and taxpayers of 
Boston, it seems to me, are not in the mood to 
be satisfied with mere routine work; they insist 
that their Government shall be not only efficient 
and pure, but also progressive in the right di- 

Public servants of experience are apt to take 
a despondent view of public opinion. But the 
pubUc is not intentionally unjust, and it is not 
ungenerous. It is not infaUible, but naturally 
prefers to judge its Government liberally. It is 
ready to forgive errors of judgment; it will not 
condone breaches of good faith, nor a violation 
of public duty. 

The year 1890 will not be a happy one in the 
annals of the City Government, unless it marks a 
generally-increased efficiency in our legislative 


and executive departments. The opinion that the 
City Government will surely be more efficient 
when larger sums of money are taxed upon the 
people, appropriated by the City Council, and ex- 
pended by the Executive Department, is not justi- 
fied. We have the means to satisfy the real 
needs of the community, provided the money is 
expended with the best judgment. This judg- 
ment must begin in the appropriations made by 
the City Council, and must be continued in 
every executive branch returning to the people 
a fair equivalent of what they have paid in 

However the Executive Department may be 
separated from the Legislature of the City, you 
shall have free access to all the acts of the 
Administration in all its branches. No executive 
branch will have any secrets. Should the City 
Council, or either of its branches, or any mem- 
ber of either, desire information upon any of the 
Executive Departments, a request duly presented 
to the Mayor's office will be honored in prefer- 
ence to ordinary business. On the other hand, 
I am bound to confess that the Departments are 
not required to act upon all suggestions that 
may reach them from the members of the City 
Council, or even from its committees. 

Of your special duties. Gentlemen of the City 


Council, I entertain the highest conception. Within 
the laws of the Commonwealth you are to make 
the Ordinances and Kegulations by which the 
people of this great City are to be governed. 
In the nature of things you cannot legislate for 
the sole benefit of your Ward or District; you 
belong to the whole City, and your service con- 
cerns the entire population. If you take a nar- 
rower view of your calling, you condemn your- 
selves to ineflSiciency and a corresponding loss 
of popularity and power. 

You will shortly be called upon to make the 
annual appropriations, and it will be impossible 
for any Executive Department to exceed the 
amount you may have supplied. Wherever a 
trial of strength has been risked between the 
several branches of a government, that division 
has ever triumphed which held the purse-strings. 
Tour power, therefore, is very great; and your 
responsibility is measured by your power. 

I shall immediately submit for your informa- 
tion a series of Department reports, giving an 
account for the year just closed, stating the sums 
available in each Department, and making certain 
recommendations. I do not fully concur in these 
latter, but all are entitled to your attention and 

The number of our Election Precincts is need- 


lessly large, and may be reduced without disad- 
vantage, and with a saving of expenses. The 
recommendation that the number of ^Election 
Officers — now twelve to every Precinct — be 
reduced to eight, is founded in experience and 
reason; but their number is prescribed by the 
laws of the Commonwealth, and cannot properly 
come before us for decision. 

The Law Department alludes to a revision of 
the Ordinances upon which the City Solicitor has 
been engaged. I conunend his work to your 
immediate attention and early adoption. The ex- 
cellence of this work leads me to suggest that 
you authorise the Law Department to compile, 
for your own benefit and for the convenience of 
the public, a complete collection of all laws re- 
lating to the City, with such annotations and 
additions as the Law Department may think 
proper. It is desirable also that each Executive 
Department publish, in pamphlet form, all Acts, 
Ordinances, Kegulations, and Kules it is specially 
pledged to administer. "We have had a govem- 
jnent of men and committees; we should establish 
a government of written law administered by 
competent men in the public interest only. 

The Paving and the Health Department have 
done their work efficiently ; they have expended 
their appropriations judiciously and with a scru- 


pulous regard for the wishes of the people. 
Meanwhile the public are not satisfied, and our 
streets are regarded by some persons as 
ill-paved, ill-swept, and unsatisfactory. The 
Administration is not charged with waste or 
incompetence; the public complain that larger 
smns are not appropriated and expended for pa- 
ving, asphalting, macadamising, and sweeping the 
streets. In other words, the public complain 
that we want $2,500,000 for putting our streets 
in good condition, and an additional $100,000 a 
year for sweeping and general cleanliness. Yet 
ever since the Act of 1885 the City has ex- ' 
pended every dollar it could obtain by taxes or 
loans, a fair proportion being allowed to the 
Paving and Health Departments, and prop- 
erly expended. I recommend that the City 
Council appoint special Committees to consider 
the two subjects of paving and sweepmg our 
streets, these Committees to report what steps 
ought to be taken, beyond those taken by the 
Executive, in order to give the public what is 
so persistently demanded. The Superintendent 
of Health asks for $80,000 to meet the public 
demand, and the Superintendent of Streets sug- 
gests that his Department receive $500,000 for 
new work alone. 

The conveyance of prisoners from the several 


station-houses to the Court-House and to the 
boat should be transferred, without further delay, 
from the Superintendent of Health to the Board 
of Police. 

The Superintendent of Lamps asks for an Or- 
dinance prohibiting the erection of posts in the 
street within ten feet of a public lamp-post. 
This reconunendation is reasonable, and should 
be acted upon. 

The City Engineer reports four bridges as 
dangerous, among them the Berkeley-Street and 
the Federal-Street bridge. This subject is very 
urgent. It will be criminal to postpone action 
in the premises. 

The Bridge Department, the Registrars of 
Voters, the Public Library, the Inspector oi 
Buildings, the Superintendent of the Common, 
the Commissioners of Public Institutions, and the 
Armories, require a slight allowance each, and 
are commended to your attention. The Board 
of Police will need the ftdl appropriation, a part 
of which has been transferred to other objects. 
The recommendations made by the Directors of 
the East-Boston Ferries should be acted upon 
by the City Council. It may not be possible 
to appropriate $500,000 for their purposes; but 
the Ferries are in need of greater security and 


The Superintendent of Printing has clerical 
power only. He should have the authority of 
making all contracts for his Department; he 
should control the distribution of stationery and 
similar supplies; and the distribution of public 
documents should be placed under his charge 
after the City Council has reserved for its own 
pleasure a suitable number of executive and 
kindred documents. 

The sewers of the City are not in a satis- 
factory condition, the sums required for a rea- 
sonably good system of sewerage not having 
been available. The subject is important, as de- 
fective sewers threaten us with an epidemic and 
an even higher rate of mortality than that re- 
ported by the Board of Health. This annual 
rate exceeds twenty-four per thousand inhab- 
itants; it should not exceed two per cent. 

The fire on Thanksgiving day calls for cer^ 
tain changes in our building-laws. Should the 
City Council grant the necessary authority, I 
shall be glad to appoint a Commission for a 
general enquiry into this subject together with 
that of electric wires and appliances. 

The City Hospital is commended to your 
special attention and prudent liberality. 

The City should have the authority to lay 
out and establish the grade of streets through- 


out our territory. We permit private streets and 
places to be built upon under conditions not 
unlike those of the Church-Street and other dis- 
tricts which had to be raised at a great public 

The opportunity for widening Bedford Street 
and, perhaps, Chauncy Street, should not be lost. 
We may now do, at a moderate expense, what 
later on will cost millions. The City Government 
should act immediately, for the reason that build- 
ing permits are about to be issued to the owners 
of the estates. 

Our school-houses are in need of sanitary im- 
provement; and further steps remain to be taken 
to establish manual training as a part of our 
Public-School education. We should co-operate 
with the School Committee in making our schools 
the best and the most practical in the United 

As to the consolidation of certain administra- 
tive Departments, I renew my recommendations 
of last year, and desire to express general con- 
currence in the able Committee report upon that 
subject made by Mr. Alderman Wilson. 

For the Eleventh National Census, to be taken 
this year, I bespeak the hearty confidence and 
co-operation of all citizens, especially business 
men, and I recommend that all its data refer- 


ring to Boston be secured in advance, for the 
earliest possible use of the City Government and 
the public. 

The National Encampment of the Grand Army, 
which is to be held in Boston, will probably be 
the largest gathering of Union Veterans ever 
assembled in New England. I recommend a 
liberal appropriation for this purpose, in order to 
show that Boston is not only hospitable and 
loyal, but ever grateful to the men who fought 
for the Union. The City, the Commonwealth, 
and the people ought to co-operate in making 
the Encampment worthy of Boston, Massachu- 
setts, and the assembled Veterans. 

Elaborate financial statements will be submitted 
to you from the Collector, the Auditor, the 
Treasurer, and the Water Department. They 
show how the revenue of the City has been ob- 
tained, and how it has been expended. I regret 
to say that the tax and debt limitation Act of 
April 17, 1885, has not produced the result its 
friends expected. Since that Act was passed, the 
Commonwealth has authorised loans amounting 
to 18,900,000 outside the debt limit. Within the 
limit practically every dollar has been borrowed, 
the result being the largest debt, both gross and 
net, as well as the largest interest and sinking- 
fund burden, in our whole history as a City. This 


state of affairs has been inherited by the present 
Administration, and is likely to continue in 1890. 
The low taxes are due ip the Act of 1885, and 
our large indebtedness has been increased in 
strict compliance with the Special Acts, and in part 
by order, of the Commonwealth. Even the most 
conservative members of the City Government 
have been willing, not to say anxious, to borrow 
as far as the law allows. 

The City Government is practically helpless in 
the premises. We cannot tax the people beyond 
the limit laid down by law. Yet the wants and 
demands of the people beyond that limit are 
imperative. My predecessor in office approved 
the tax limit most emphatically, but thought 
the debt limit too low. I cannot conscientiously 
deviate from the views expressed in my first 
inaug^al address. 

For obvious reasons the taxpayers, except those 
especially informed, appear to favor the very low 
tax-rate of the past five years, and might view 
a change with disfavor. In order to settle this 
point, I trust that a paid Commission will be 
authorised by the City Government to ascertain 
the good and bad effects of the present laws, 
both here and elsewhere, and to make such 
recommendations as will be proper, and in rea- 
sonable harmony with public opinion. 


For the Executive has to carry out the wish 
of the people as expressed in the public laws. I 
may state, however, that, in my opinion, a policy 
of low taxes and large debts is wrong and un- 
fortunate; that all our current expenses should be 
paid out of current taxes; and that the Govern- 
ment of Boston is confronted by the alternative 
of either reducing expenses all round, the Pub- 
lic Library and the Public Schools included, or a 
change in our fiscal policy which means higher 
taxes. In other words. Shall Boston become a 
second-rate City, or shall we make it the best- 
governed, the best-appointed, and the most beau- 
tiful City in the United States? It is for the 
people, the taxpayers, the voters to choose. It is 
for the City Government to cany the vote of 
the people into effect. 

"While I do not approve the near-sighted policy 
of low taxes and large debts, I do not hesitate to 
add that this policy has not as yet worked dis- 
astrously. The Assessors value the real property 
owned by the City at |64,042,700. To this should 
be added a vast amount of personal property, in- 
cluding $22,789,195.93 in the sinking funds, and 
other cash amounting to $4,400,651.82 with which 
the Treasurer began the current calendar year. A 
corporation with such assets need not, perhaps, 
dread the net debt of |28,321,788.06 with which 


we began this year. In the past five years this 
debt has increased $3,555,723.79 — an amount rep- 
resented in the appropriations for the new Pub- 
lic Library building, the new Court-House, and 
the Harvard Bridge, none of which are as yet 
in use by the people. We have expended for — 

Public Parks $5,718,957 84 

The New Public Library BuUding . 692,605 43 

The New Court-House .... 2,473,166 97 

Main Drainage Works .... 5,419,251 74 

Water-Works 22,129,255 19 

A total of • . . . . $36,433,237 17 

These are vast snros, but we are receiving an 
equivalent, or expect to receive it shortly. And 
as long as the City increases, both in popula- 
tion and wealth, our expenses should increase. 
Even our running expenses will increase greatly 
in merely maintaining the great public works 
just named. Our expenses should diminish when 
we are ready for a decline, when we no longer 
demand the best, and when Boston is too eco- 
nomical for the latest and most costly improve- 
ments. God forbid that this day should dawn 
while we or our children are among the living. 



Cnr Akchitbct's Office, December 28, 1889. 
Hon. Thohas N. Hart, Mayor. 

Sm: — The actual work doae by this Departanent during the 
calendar year 1889 is as follows: — 

The Boxbury High School, Warren street; Out-Patients* 
Building, City Hospital, Harrison avenue ; Grammar School, H 
and Fifth streets. South Boston ; Horace Mann Sdiool, Newbury 
street ; Athletic Building, Charles River Park ; Biological Labora- 
tory, Chestnut Hill ; Water Tank Cover, Orient Heights, Ward 
1 ; Police Department Patrol Wagon House, Division 7; Police 
Department Patrol Wagon House, Division 11 ; Brick Stable, 
110 by 40 feet, for the Wat^ Board, Albany street; Machine 
Shop, 215 by 40 feet, for the Water Board, Albany street ; Pierce 
School, 12 rooms, Washington street, Waard 24; Six-room 
school. Bow and Wyman streets. Ward 23 ; Four-room school, 
Harold and Homestead streets. Ward 21 ; Eight-room school, 
Leyden street. Ward 1 ; Ten-room school, Sumner and Lamson 
streets, Ward 2 ; Eight-room school, Cumberland and St. Botolph 
streets, Ward 11 ; Stable for Sewer Department at Chestnut Hill ; 
Stable and Engine House at Calf Pasture, for the Sewer Depart- 

The Roxbury High School on the first of June was up to 
grade, and no work going on. It has been since that time so 


far completed as to be ready for the work of the iron roof. 
Part of the roof is now in position, and the contracts call for the 
work on the roof to be completed by April first. The temporary 
roof for this building is already in place, and the iron-work is to 
be built over it ; meantime the work on the inside of the build- 
ing will be pushed along through the winter months. Much 
delay was occasioned on this building in the early part of the 
year by the refusal of the Inspector of Buildings to approve the 
plans of my predecessors, on account of violations of both Statute 
Law and the City Ordinances, causing a lai^e additional expense 
in fire-proofing and changing wood roof construction to iron. 
Strenuous efforts will be made by this Department to complete 
and turn over this building to the School Committee soon after 
the next summer vacation, so that the large amount of the City's 
money involved in its erection shall lie idle as short a time as 

The Out-Patients' BuUding at the City Hospital has been 
completed and turned over to the Trustees. 

The Thomas N. Hart Grammar School, H and Fifth streets, 
South Boston, has been completed and turned over to the School 

The Horace Mann School will be ready for the School Com- 
mittee during the month of March, 1890. The work on this 
building has been pushed as rapidly as the state of the appro- 
priation would permit. The inside finish of the building is being 
rapidly completed. 

The Athletic Building, Charlesbank, has been completed and 
turned over to the Park Commissioners. 

The Biological Laboratory at Chestnut Hill has been com- 
pleted and turned over to the Water Board. 

The Water Tank Cover at Orient Heights, Ward 1, is about 


completed and will be tarned over to the Water Board in a few 

The Police Patrol Wagon Houses in both Divisions 7 and 11 
are well under way and will be completed and turned over to 
the Police Department about March 20. 

The Stable for the Water Board on Albany street is about 
completed, and will be turned over to the Water Board in Jan- 
uary, 1890. 

The Machine Shop on Albany street, for the Water Board, has 
been contracted for and will be pushed to completion as rapidly 
as the weather of the winter months will permit. 

The plans for the Pierce School on Washington street, in 
Ward 24, have been approved by the School Committee, and the 
work on the foundations is almost complete and ready to be 
covered up. 

The plans for the Schools on Bow and Wyman streets, Ward 
23 ; Harold and Homestead streets. Ward 21 ; Ley den street, 
Ward 1 ; Sumner and Lamson streets, Ward 2 ; Cumberland and 
St. Botolph streets. Ward 11, are all in course of preparation, 
some of them being nearly completed. 

The plans for the Stable for the Sewer Department at Chestnut 
Hill have been made and are awaiting orders from .the Super- 
intendent of Sewers, as are also the plans for the Stable and 
Engine house at Calf Pasture. 

Some preliminary work has been done on the new Engine 
Houses and Central Fire Station for the Fire Department, which 
are proposed to be built the coming year. 

The actual Expenses of the Department for the year, exclud- 
ing the draft of January first, 1889, but including the draft of 
January first, 1890, have been $18,491.50, leaving an unexpended 
balance of $7,173.39, which by close economy will carry the 
Department to the end of the fiscal year. 



I might add that the original appropriation was $20,000. A 
special appropriation was made for the Department in the early 
part of the year to settle accounts which had ran over from the 
year 1888. The original appropriation of $20,000 was some 
$3,000 short of what was appropriated the year previoas, and 
the Department has done more work, as can be seen by a glance 
at the statement above, than it has for some years. 

The number of persons at present employed by tJie Depart- 

ment ia twenty-six. 



City Architect, 


Assessors' Office, December 24, 1889. 

To His HofnOT th£ Mayor, 

Sib : — The valuation of the City as found by the Assessors as 
of the first day of May, 1889, was $795,433,744. The estimated 
amount of the real estate was $593,799,975, and of personal estate, 
$201,633,769. The gain in valuation over that determined by the 
assessment of 1888 was $30,786,700 on real, and $194,496 on per- 
sonal property. The amounts of the several warrants for State, 
County, and City taxes, for the current and preceding year, were 
as follows : — 


County . . . 


$888,805 00 

668,444 00 

8,520,783 00 

$10,028,082 00 




$759,518 29 

788,191 00 

8,578,960 00 

$69,747 00 
58,177 00 

$74,286 71 

$10,076,669 29 

$58,687 29 



The rate of taxation for 1888 and 1889 on each $1,000, the 
proportion for the several warrants, and the average rate of taxa- 
tion for the whole State, as determined by the Tax Commissioner 
of the Commonwealth for the assessment of Massachusetts cor- 
porations, are shown as follows : — 





Avermge of State. 







Of the City rate of $11.69 in 1888, $2.38 per $1,000 were re- 
quired for public schools, and $9.81 per $1,000 raised the money 
expended from. the tax levy for all other purposes. Of the rate 
of the current year, the schools require $2.47, leaving $8.80 per 
$1,000 of the total levy for other purposes. For the State tax of 
the present year, two warrants were received by the Assessors. 
The first was for the City's proportion of the State tax of 
$2,000,000. Its amount was $738,020. The second was for the 
sum of $21,498.29. It was issued by the Treasurer of the Com- 
monwealth by authority of Section 7 of Chapter 384 of the Acts 
of the year 1888. This chapter provides that commissioners 
appointed by the Governor and Council shall acquire land in the 
City of Boston and other cities of the State, '' by purchase or 
otherwise," and erect thereon armories for the volunteer militia. 
To meet the expense incurred, the State may issue four per cent, 
certificates of debt, which are sold as the Governor and Council 
shall order. To provide for the interest when due, and the 
principal at maturity, a sinking-fund is established. The amount 
required therefor, and the semi-annual interest on the outstanding 



certificates, is charged to the City where any armory is located, 

^* and assessed upon it in the apportionment and assessment of 

its annual tax." ' As two lots of land have been taken in Boston, 

upon one of which a building has been erected, a considerable 

addition to the tax of the State may be expected in the future 

from the annual requisitions made upon the City under this act. 

The Wards of Boston as they now exist were established in 1875. 

Their lines cannot be altered until 1895. The law requires that 

our assessment districts shall be within Ward lines. Some of our 

suburban Wards have grown to such an extent that it has become 

impossible to do the street-work of their districts in the time that 
can be given for that purpose. In 1887, Ward 24 (Dorchester), 

which since 1876 had consisted of two districts, was divided into 

three. The time has arrived when West Boxbury can no longer 

be properly canvassed with less than three assessment districts 

within the lines of Ward 23. The power to make such a change 

is given to the Board of Assessors by Chapter 115 of the Acts of 


The actual expenses of the Department for the year 1889 
were $108,883.26. The unexpended appropriation to meet the 
expenditures for the balance of the financial year amounts to 
$16,707.66, and is sufiicient for that purpose. 

The force employed in the Department at this season of the 

year is small. At present it consists of five Assessors and nine 


Very respectfully, for the Board of Assessors, 








Boston, January 1, 1890. 
To His Honor the Mayor. 

Sir : — I herewith transmit a statement of the Assessors! 

valuation for the preceding five years and of the abatements 

thereon allowed previous to the thirty-first day of December 

last, also the average of said valuations reduced by said 

abatements : — 

Aueuon* Abatomenta to 

Valoatton. Dooember 81, 1889. 

1886 $686,579,072 20 #8,617,800 00 

1886 710,621,886 82 7,661,800 00 

1887 748,164,717 41 7,468,800 00 

1888 766,868,648 89 6,772,700 00 

1889 796,981,448 71 6,544,900 00 

Total #8,705,650,217 08 #86,965,500 00 

1/688 abatement8 .... 86,965,500 00 

#8,668,684,717 08 
DiTided by 5 gires . . . 788,786,948 00 as the arerage of 

the Asaesaors' ralitations for the past fire years. 

Respectfully submitted, 




AuprroR's Office, Crrr Hall, December 31, 1889. 
HoK. Thomas N. Hart, Mayor. 

Sir : — In answer to your circular letter of December 23, 1889, 
I TTOuld state — 


First : The amount of drafts drawn during the year 1889 have 
been as follows : — 

6ea«ralDnfti. Pay-roll Drafts. SpeoUl Drafts. Total*. 

Ci^ Account : 96,728,268 82 $6,509,60122 $5,549,880 99 $18,787,696 08 

Coanty Account : Amount allowed and drawn for . 1,258,668 15 

$20,046,264 18 

Second : Total expense of tins Department for 1889 . . $24,270 85 

Third : Balance of the appropriation for the year 1889-90, 
January 1, 1890 6,608 08 

which will be sufficient for the financial year ending April 30, 1890. 

Fourth : Total number of persons employed in this Department 

is twelve. 

Very respectfully, 


City Auditor. 

The Crrr and Countt Debt. 

Gross funded debt, December 81, 1888 .... $48,576,569 29 
Add funded debt issued in 1889 8,784,000 00 

$52,860,569 29 
Deduct funded debt paid in 1889 1,174,828 20 

Gross debt, December 81, 1889 $51,185,741 09 

Sinking-Funds, December 81, 1888 . . $21,539,589 42 
Receipts during 1889 2,414,222 44 

$23,958,811 86 
Payments during 1889 . . . . 1,164,615 93 

$22,789,195 98 
Bonds and mortgages, the payments of 

which are pledged to the payment of 

debt . . . . . . . 74,757 10 

Total redemption means, December 81, 1889 . . . 22,863,958 08 

Net debt, December 31, 1889 $28,821,788 06 


APPENDI3(. 23 

Gross debt, December 81, 1889 $51,186,741 09 

Gross debt, December 81, 1888 48,576,569 29 

Increase * $2,609,171 80 

Net debt, December 81, 1889 $28,821,788 06 

Net debt, December 81, 1888 26,850,901 99 

Increase $1,470,886 07 

Citj debt, including balance of debts assumed by acts 

of annexation $82,424,467 11 

Conniy debt 2,446,000 00 

Cochitaate Water debt 15,476,278 98 

Mystic Water debt 889,000 00 

$51,185,741 09 

At the present time tlie assumed debts remaining unpaid are, on 

account of — 

Cbarlestown Qty . 

1 • • • • 

$728,000 00, 

bearing 6% 

Mystic Water 

$488,000 00 



41 l< 

108,000 00 



U il 


18,000 00 



• 4 

240,000 00 




85,000 00 

889,000 00 



$1,567,000 00 

West Boxbury 

• • • • 

50,000 00 



$1,617,000 00 



Statement showisg borrowing limit, December 81, 1889: 

Total Debt, City and County, December 81, 1889 . . #61,185,741 00 

Less Special Loans $8,650,000 00 

** Cochitnate Water Debt . . . 15,478,278 98 

" Mystic Water Debt . 889,000 00 

<* County Debt exempt .... 1,800,000 00 

21,565,278 98 

•29,620,467 11 
Less Sinking-Punds ^22,789, 195 98 

Cochitnate Water Sinking- 

Fund .... 95,285,456 87 
Mystic Water Sinking- 

Fund .... 754,926 05 
Park Construction Sink- 

ing-Fund . . . 169,077 08 
Special Loans Sinking- 

Fund .... 89,926 84 

County Sinking-Fund . 44,420 07 

6,843,805 91 

16,445,890 02 

913,175,077 09 
Add amount of Loan Order approred by Mayor Decem- 
ber 24, 1889 1,087,000 00 

914,212,077 09 
2 % on $711,071,286, average raluation 5 years, less abate- 
ments 14,221,425 72 

Bight to borrow December 81, 1889 .... $9,848 68 



Gross Debt akd Debt Rsquxbemekts. 

DeM upon 

wbloh iDterMt 

was paid. 




Paid from 
Taxes oihor 
than Wat«r. 


from Water 



from Taxes 







187»-79 .... 
187»^ . . . . 
1880-81 . • . . 
1881-82 .... 
1882-88 . . . . 

1884-86 .... 
1886-86 .... 
18804T .... 
1887-88 .... 

Xboq oB .... 

#42,869,816 28 
42,060,126 86 
40,9«0,88t 18 
40,079,812 04 
41,184,358 12 
48,185,669 07 
42,962,180 02 
48,628,822 04 
46,790,068 72 
48,998,808 46 
40,920,475 26 

#1,606,754 56 
1.670,147 66 
1,586,540 01 
1,627,144 96 
1,492,877 19 
1,683,972 82 
1,620,900 10 
1,611,413 41 
1,688,974 78 
1,601,699 28 
1,603,862 68 

$686^406 70 
706^902 08 
684.681 52 
661,419 76 
692,206 80 
698,078 41 
717,618 07 
790,688 78 
788,740 28 
ni,997 96 
788,117 82 

#664,906 00 

405,704 00 
808,655 00 
781,601 00 
720,159 00 
768,278 00 
780,498 00 
648,968 00 
685,006 00 
749^07 00 
808,960 00 

#218,328 32 
287,706 80 
227,440 20 
278,894 04 

280,260 89 
186322 11 
860,068 68 
260,038 06 
879,499 01 

Loans Aitthobized bt Statute Outside of Debt Limit. 





Bate of 




Pobllo Plffk Oonatnietlon . . . 


June 21,1886^ 




Suffolk County Ooiurt-HOQse . 

> 2,500,000 

Mareb21, 1887, 




Hairard Bridge 


May 18,1887, 



PttbUe Piark Lands 


May 26,1887, 




Sewer, Ttamont street .... 


June 11,1887, 


Stony Brook Improremeiit • . 


Jone 16,1887, 




Pnblio Park Lands 


May 28,1888. 




Marob 1,1880. 



W. CSMSler Park Extension . 


April 12, 1880, 


Confress street and OIItot 
street Extension 


April 26, 1880, 


Improved Sewerage 


May 9, 1889. 


Total • 



* In addition to tbeeost of tbelnnd. 



CouNTT OP Suffolk. 

Bttnning Expenses. 

1881-82 $888,261 12 

1882-^ . 862,908 06 

1888-84 868,855 40 

1884-85 880,928 70 

1885-86 416,970 08 

1886-67 484,618 54 

1887-88 472,019 24 

1888-89 522,921 68 

1889-90 to December 1, inelnsiye . . . ' . . . 845,244 61 

.Amount of debt issaed between May 1, 1878, and May 1, 
1889, and the rate of interest: — 

11,000 00 at 

1 4 

6 per cent. 

100,000 00 " 

i 1 

6 " 

718,000 00 ** 

» < 

^ « 

18,017,500 00 ** 

1 4 

i " 

4,864,000 00 ** 

t i 

8J " 

144,000 00 *» 

> 4 

Si " 

2,065,000 00 " 

1 < 

8 " 

125,000 00 " 

i 4 

2J " 

$25,534,500 00 

Amount of debt paid between May 1, 1878, and May 1, 
1889, and the rate of interest: — 

$520,000 00 at • . 7 per cent 

90,000 00 " . . 6} " 

8,860,490 60 ** . . 6 " 

78,000 00 " . . 5J " 

Carried fanoard^ $9,548,490 60 


Brought forward^ $9,548,490 60 

5,387,201 62 at . 

5 per cent. 

1,138,205 00 " • 

. 4J » 

1,628,000 00 " . 

4 " 

150,000 00 " . 

. 8J " 

154,000 00 ** . 

8 " 

125,000 00 " . 

. ^ " 


$18,070,897 22 

150 00 annuity. 

$18,071,047 22 

Transfer of Appropriations. 
The following table shows the amount of the transfers made 
by order of the City Counoil daring the past fifteen years, the 
amount added to the regular appropriations, and the percentage 
of these additions to the total of transfers : — 



Total of 

Tranif era to 


R<»gnlar Approprlationa. 


$420,970 02 

$117,781 58 


714,880 97 

255,459 40 


418,898 54 

129,298 24 


211,167 50 

121,828 02 


171,404 82 

185,484 75 


842,187 07 

241,597 81 


270,814 85 

192,174 25 


229,659 07 

165,124 88 


261,010 11 

158,808 08 



127,418 42 


282,266 87 

148,010 71 


867,421 68 

154,451 10 


882,552 02 

256,478 75 


851,588 06 

255,770 71 


870,122 26 

224,468 24 












01 ee 09 e« 


8 3 S 







ifooja 'Corns 

ix| Xoaopyaii 


S 8 

*O90 'mdoh 


S 3 i 



§ § 

i 8 

8 8 8 

8 iS 

iH • 8 8 S • 

9t m mk ^ m ^ m 

2 I s i I I i 


• • • 

• • • 


S 8 S 8 

do w O 00 
lH 1-4 2 




■• ^ «« 

S 9 S 

1 1 1 
IS § 





§ § 


• •> • 

2 § " 


n 5 5 ? S 



§ 6 


3 I 


§ I I I 

• • * •* 

8 5 3 3 
































Loans of 1889. 

Date of Order. 

Dec. 81, 1887. 

Jan. 8, 1889. 

Feb. 16, 1880. 

Mar. 18, 1889 . 

Apl. 16, 1889. 

June 8, 188M . 

Bept. 4, 1889. 
Sept. 28, 1889 . 
Koy. 13, 1889. 
Not. 13, 1889 . 

Debt laaaed alnce Jan. 1, 1889. 

Pabllc Park Conatmetlon 



New Library Building . . 
Extension of Maine . • . 

New Shope, Albany et., Ooehltnate Water- 

Improved Sewerage .... 


Extension of Mains, etc. . . 
Additional Supply of Water 

Included in 
Debt Limit. 


$709,000 00 
480,000 00 

Outalde of 
Debt Limit. 

$500,000 00 

Date of Order. 

The following amounts have been author- 
ised but not issued :— 

Dec. 81, 1887. 

Mar. 18, 1889. 

Not. 13, 1889 . 

Not. 80, 1889 . 

Deo. 24, 1889. 

Public Park Construction . 
New Library Building . . • 
Extension of Mains, etc. . . 
AddiUonai Supply of Water 

600,000 00 

$1,749,000 00 

Included in 
Debt Limit. 

600,000 00 
200,000 00 

00,000 00 
600,000 00 

130,000 00 
146,000 00 

$3,035,000 00 

Outside of 
Debt Limit. 

$1,037,000 00 

$1,087,000 00 

$1,000,000 00 
600,000 00 
20,000 00 
900,000 00 

$2,420,000 00 


14 Beacon Street, December 28, 1889. 
Hon. Thomas N. Hart, Mayor of Boston, 

Sir : — The actual work done by this Department daring the 
year 1889 has been the usual and necessary repairs upon the 
tide-water and inland bridges, for which the appropriation was 
granted. The work has been done by day-labor. Some extraor- 
dinary repairs have been done by order of the City Engineer, 



for which no provision had been made, bat they were demanded 
for the public safety and convenience, and for this payment I was 
obliged to use money apportioned for other purposes. I con- 
sidered that I was using good judgment in making said repairs. 
A brief statement of the work done is as follows: — 

61 roadways ware Bbeathed; 9 naw decks laid; 6 new sidewalks laid 
44 new wheels pat in; 10 new headers put in; 8 new stringers put in 
2 piers repaired; 4 waterways repaired; 6 fences repaired ; 6 gates repaired 
1 draw-house repaired ; 2 stables repaired ; 6 tracks repaired ; 1 new paint- 
shop bnilt ; repaired sheathing on 9 bridges ; repaired planking on 8 bridges ; 
extensive paving repairs on 2 bridges; repaired gaards on 8 bridges; 
repaired, painted, and reset 7 bnoys ; repaired engines and machinery on 4 
bridges ; 19 bridges were painted two coats ; 18 buildings were painted two 
coats; 5 boats were painted two coats; 2 draws were painted two coats; 
and small repairs were made on varioas bridges. 

The expenses of the Department have been as follows: — 
January 1, 1889, to May 1, 1889 . . . $20,981 63 

May 1, 1889, to January 1, 1890 

74,840 81 

$95,322 44 
95,113 38 
97,011 44 

January 1, 1889, to January 1, 1890 
Expenses during 1888 were 
Expenses during 1887 were 

In no year during its existence have the expenses of this 
Department been less than $95,000. 

Appropriation for 1889-90 . . • . . $90,000 00 
Expended to January 1, 1890 .... 74,340 81 

Balance on hand $15,659 19 

This amount will not be suflQcient to carry the Department 
to the end of the financial year. But if I am reimbursed in 
part for the money expended for extraordinary 'repairs for 


which I Bhoald not be held responsible, — a small amoani of 

which I asked for in my communications of October 21 and 

NoTcmber 8, 1889, — I shall be enabled to make snch repairs as 

may be required during the winter, to continue the new 

watchman at Cottage-street bridge recently built, to remove the 

snow from inland bridges, to have a small amount for contin-, 

gencies, and to continue my force as at present to May 1, 1890. 

The total number of names on my rdOs at present is 72, divided 

as follows : 52 draw -tenders, who are permanently employed ; 10 

mechanics on full time, 8 mechanics on half time, a derk, and 

the Superintendent. 



Sttptriniendent of Bridget. 



Boston, December 27, 1889. 
To His Honor the Mctyor. 

Sm: — In response to Circular No. 35, of December 28, 
1889, I would say that, with the exception of thorough re- 
pairs to the Prison-Point Bridge draw, there has been no work 
done on the bridges in charge of the Commissioners other than 
their maintenance and necessary repairs. 
The expenditures in 1889 have been . . . $7,572 13 
Balance of appropriation 8,385 95 

The unexpended balance is sufficient for all purposes to the 

end of the fiscal year. 

The number of employees is eight. 


* Commiswmer for Boston. 



Depabtkemt fob the Ikspectiok of Buildings, 

Old State House, December 28, 1889. 

Honorable Thomas N. Habt, Mayor, 

Sib: — The work of the Department contLnaes to increase 
year by year, and the extent of the increase of the work 
of this year to December 25 only, as compared with the 
entire work of last year can be seen by the following table 
of permits granted: — 

To December 25 1889 1889 

Brick 379 881 

Wood 1,844 1,554 

Alterations, etc 2,202 2,095 

Plumbing 4,185 8,575 

Boilers and Engines 888 1,018 

In the departments of egress, elevators, prosecutions, plans, 
and records, the same increase has taken place. 

The expense of the Department for the year 1889, in- 
cluding the January draft of 1890, and excluding the Jan- 
nary draft of 1889 amounts to $58,609.85. 

This has been obtained not only by the strictest economy, 
but by cutting off the means of transporting the officers of 
the Department through and about the City in their official 
work, thereby taking up the valuable time that should be 
given to inspection, in going from place to place on foot. 
This cut-down was necessary, that the Department might 
comply with the requirements of the City Charter, and keep 
within the appropriation. 

Our unexpended appropriation is $12,392.88. 


As to tho ability of the Department to continue its work 
to the end of the fiscal year, I would respectfully renew 
my communication of Noyember 8, 1889, in answer to Circu- 
lar No. 34, and add that since that date the Department 
has been called upon to incur large and what may be termed 
extraordinary expenditures. The amount I am unable to state, 
the bills not having as yet been presented. This amount 
wiU have to be paid by a special appropriation, the De- 
partment having no appropriation granted it to meet such 

These expenses were necessitated in securing the public 
against accident, by taking down unsafe walls occasioned by 
the fire of November 28. . 

For the greater efficiency of this Department, especially 
such as may require action on the part of the Mayor, the 
City Council, or the Commonwealth, I would recommend the 
cooperation of the City Council with the gentlemen of the 
Committee now acting on the revision of the BuUding Laws, 
of which Mr. Wm. Minot, Jr., is chairman. 

This able committee of citizens, representing the varied 
interests, such as architects, masons, builders, and contractors, 
carpenters, fire insurance agents, board of underwriters, elec- 
tricians, real estate owners and agents, and civil engineers, 
has received the hearty commendation of your Honor. 

The Department consists of thirty persons. 



Inspector of Buildings, 



Office of the Superintendent, December 28, 1889. 
Hon. Thomas N. Hart, Mayor. 

Sir : — In reply to Circular 35, I would respectfully submit 
the following : — 

The actual work of the Department for the year 1889 has 
been the repairs, alterations, furnishing, equipment, and main- 
tenance of the public buildings, school-houses, County buildings, 
and armories of the militia. 

The actual expense for this work for the same period has 
been as follows : — 

PubUc BaildingB $142,533 40 

School Houses 276,787 75 

County Builduigs 65,504 88 

Armories 40,721 43 

These amounts cover the period from the February draft of 
1889 to that of January, 1890, inclusive. 

The unexpended balances of appropriations which this De- 
partment has in charge will be sufficient (provided no extraor- 
dinary demands are made) to continue our work to the end of 
the fiscal year, with the exception of that for armories, which 
will require an additional amount of $5,000 to cover the 
time specified. 

The total number of persons employed in the Depai*tment, 
including the Superintendent, is eleven (11). 

In my judgment the number of polling places, which now 
number 286, can be reduced to 200, and not inconvenience the 
citizens, but materially reduce the cost in this direction. I 
would also suggest the feasibility of merging all the work that 


appertains to the use of ward rooms, registration of voters 
and election expenses under one head, thereby reducing the 
cost. The work as at present performed is by four different 
Departments independently, thus ti*espassing upon the regular 
work of those Departments, and probably not so economically 
performed as it would be by one Department alone. 


SuperintendeTU of Public Buildinga. 


BosTOK, December 27, 1889. 
Hon. Thomas N. Habt, Mayor. 

Sib: — In response to Circular No. 85, the Board of Trustees of 
Mount Hope Cemetery respectfully reply as follows : — 

First. The work done by our Department has been the usual 
work done in the Cemetery. 

Second. The expenditures from January 1, 1889, to January 
1, 1890, have been $27,864.80. 

Tiiird. On January 1, 1889, there was on hand a balance of 
$346.66 ; the City has only appropriated for the year 1889 the 
sum of $5,000; there will be unexpended on January 1, 1890, a 
balance of $2,826.11. The amount of expenditures was paid, 
above this sum, out of the receipts of the Cemetery, and we 
shall be able to complete the work to the end of the fiscal 
year without further aid. 

Fourth. There are now employed in carrying on the Ceme- 
tery, twenty-two persons who are paid. The Board of Trustees 
consists of five, who have no pay. 

President of Board of Trustees. 




Office of the Citt Clerk, December 28, 1889. 
To the Mayor. 

The work of this Department may be classed under three 
heads, viz. : 

1. Recording mortgages of personal property, etc. 

2. Recording the acts of the City Council. 

3. Care and preparation of the election machinery, except 
the assessment and registration of voters. 

1. There have been received for record at this office from 

Janaary 1, 1889, to December 25, 1889, 8,263 papers in- 

Assignments of Wages • . • . 616 

Married Women's Certificates • 
Liens on Vessels 
Fence Viewers' Certificates 
Certificates of Religious Societies 





Mortgages, Bills of Sale, etc. . 

. 7,335 


All these papers must be copied in full upon our books, 
and properly indexed. The amoant of fees received for re- 
cording the same are contained in the quarterly reports of 
the Department. 

2. The City Clerk acts as the Clerk of the Board of 
Aldermen. We record the acts of the Board of Aldermen, 
and prepare an index thereof. All ps^^ers and documents 
presented to the City Council are properly anranged and 


filed in this oflQoe. We make and send to the departments, 
parties, or individuals affected thereby, copies of all papers 
passed by the City Grovernment, seldom less than two, and 
often four or even six copies being made. 

We prepare the names of jurors, transmitted to us by the 
Registrars of Voters, for the Jury box, and record the names 
of persons drawn. 

Ordinances passed by the City Grovernment are recorded 
in full; also names of all streets, notices of accidents on 
the highway, and certain naturalization notices when the 
papers issue from Courts other than United States Courts. 

We issue all amusement licenses, and receive the fees for 
the same, there having been granted about 225 such licenses 
from January 1, 1889, to December 25, 1889. All minors' 
licenses granted by the Board of Aldermen are made out in 
this office. There were granted from January 1, 1889, to 
December 25, 1889, about 1,235 such licenses, divided as 
follows: 917 newsboys, 167 pedlers, and 151 bootblacks. We 
receive complaints under the Statute of persons assaulted by 
dogs* In addition to the work above mentioned, there are 
many matters of detail too numerous to mention. 

3. The following is a statement of the work of the City 
Clerk's office of the past season. In the latter part of the 
summer and early fall, a thorough revision of a pamphlet of 
about one hundred pages, of a digest of the laws in force in 
relation to the Assessment and Registration of V.oters, and 
the Conduct of Elections, was made and printed, with a 
suitable index to the same; also a pamphlet of Instructions 
to Election Officers. The so-called Australian Ballot Act was 
also printed, with a carefully prepared index, and o, sample 


In September, the Mayor appointed 3,432 election officers, 
and later, 347 more to fill vacancies. Certificates of appoint- 
ment were printed, filled oat, and mailed to each of these offi- 
cers, and a very large number of them were sworn at the City 
Clerk's office. 

The City Clerk set apart several evenings, and invited the 
Ejection Officers to meet him at the City Hall, that he might 
give them full instructions in relation to their duties, and 
answer any questions that might be proposed by them. These 
meetings were very fully attended, and apparently appreciated 
by the Election Officers, many of whom were entirely ignorant 
of the duties imposed upon them. A great deal of time was 
also given by him, in his regular office hours, in furnishing in- 
formation to these officers relative to their duties. 

The division of the City into new precincts entailed the 
preparation of maps of each of the new precincts, which were 
prepared under the supervision of the City Surveyor. Ten 
copies of the map of each precinct were posted, under the 
direction of the City Clerk, in the several precincts. 

When the Mayor and Aldermen designated the polling places 
for the State and City elections, there was prepared, and 
posted in ten places in each precinct, a printed description of 
the place so designated, and also advertisement was made in the 


daily and principal Sunday papers, giving a list of said places 
throughout the City. When later changes were made in sev- 
eral of these places, the above work, so far as it applies to 
the changes, was done over again. 

Nearly two hundred new cancelling ballot boxes were obtained 
from the Secretary of the Commonwealth, to meet the require- 
taents of the additional precincts. Many of these after each 
election, owing either to imperfections in construction or care- 


lessness on the part of Election Officers, require more or less 
repairing. A large number of pasteboard boxes for transmis- 
sion to the City Clerk, of the ballots cast at the polls were 
also procured, and the old ones on hand were repaired. 

When the Board of Aldermen direct that warrants be issued 
for an election, printed warrants are prepared in this office, in 
duplicate for every precinct, differing for the various wards. 
One copy of each is served by constables, by posting the same 
at or near every polling place ; the others, on which the con- 
stables make their return of service, are sent by the City 
Clerk to the Wardens at the several polling places. The 
warrants give the Wardens their authority for proceeding with 
the election, and specify the purposes for which it is held, and 
the hours during which the polls shall be open. Record books 
and seals are provided for the Clerks of the several pre- 
cincts. These books contain printed forms showing the man- 
ner in which the books should be kept, but sometimes this 
form is apparently not looked at by those whose duty it is to 
make up the record. As the City Treasurer is instructed not 
to pay the several Clerks, until he receives certificates from the 
City Clerk that their duties have been satisfactorily performed, 
a considerable amount of labor devolves upon this office in ex- 
amining the 286 record books. 

The reception and filing of certificates of nomination and 
nomination papers, hearings on objections to nominations, and 
the preparation of the list of candidates for the ballots and for 
publication and posting at City Elections, all of which duties are 
imposed upon the City Clerk, are crowded into a very limited 
period. The ballots for use at State elections are prepared and 
furnished by the Secretary of the Commonwealth. 

The tally sheets for the use of the election officers, and the 


official returns, both containing the names of all the candidates, 
can only be prepared and printed after the list of candidates is 
completed. The official returns the present year have con- 
tained the printed names of all the candidates, thus insuring 
accuracy in the names, and avoiding the necessity of notifying 

the officers to call at the City Clerk-s office, and correct errors, 
a matter which, in former years, has occasioned considerable 


Envelopes for the official returns, and also for the check 
lists, are made and printed especially for the purposes for 
which they are used. 

On the morning of each election, there is sent by a police 
officer to each polling place a registering and cancelling ballot 
box, containing the following list of articles: the warrant; a 
package containing the ballots for use at such election, together 
with specimen ballots and cards of instructions to be posted for 
the information of voters ; a pasteboard box in which are to be 
returned to the City Clerk, sealed, the ballots cast, with a cer- 
tificate to that effect signed by the election officers; the official 
return of votes cast to be filled out, signed and returned 
to the City Clerk in an envelope provided for the purpose; 
an envelope to contain the check lists used, to be signed, 
sealed, and returned to the City Clerk ; posters quoting the law 
relative to smoking and use of liquor in polling places; copies 
of the Digest of the Election Laws, and instructions to election 
officers ; hand stamps for marking ballots which may be either 
'' defective" or "cancelled"; pens, ink, pencils for the election 
officers and for the voters, sealing wax, writing paper, and 
rubber strips with which the ballots may be kept in separate 
bunches whUe being counted; also tacks with which to post 
the cards of instructions, specimen ballots, etc. 


In addition to these, it has been the practice for some years, 
to send to each precinct a blank form, styled a press return, 
prepared by the representatives of the press, to be filled out 
with the votes for the several candidates, and returned to the 
City Clerk for transmission to the head-quarters of the daily 

The police officer has a blank receipt for the ballots to be 
signed by the Warden, which is returned by the officer to the 
City Clerk. 

A blank requisition for a second set of ballots in case the 
first. set is destroyed or stolen, is also sent to each precinct. 

The check lists prepared by the Registrars of Voters are 
also placed in the charge of these officers for transmission to 
the polls. The police officers for duty on election day are fur- 
nished by the Board of Police, upon the requisition to the City 
Clerk, and comprise a large number of special officers appointed 
for these days only, in addition to a large detail from the 
regular force. The officers with the various articles committed 
to their care, are conveyed to the several polling places in 
carriages, and at night, are brought back, with the cancelling 
boxes, ballots, official returns, press returns, and check liBts. 
The requisitions for carriages, and all other matters in con« 
nection with the same, have been attended to by the City 
Messenger, to whom and those under him, the City Clerk is 
indebted for this and much other valuable assistance. 

The ballots and check lists, when received on nights of 
elections are locked in a fire-proof room, with combination 
locks, the combinations being known only to the City Clerk 
and his assistant. 

The day following the election, the compilation of the 
election returns is commenced on forms prepared for the pur- 


poBe, and usually completed in about three days. All this 
work is carefully checked from the official returns, and all the 
figures are carefully verified. After due examination by the 
Board of Aldermen, and the completion, by said Board, of any 
recounts legally asked for, the Board makes declaration of the 
results, and the proper certificates are made and signed for 
transmission by the City Clerk to the Secretary of the Com- 
monwealth or to the parties declared elected, as the case may 

The pay-roU for services of election officers at the State 
election amounts to about $10,000 ; that for the City 
election, owing to increase of compensation, to about $14,300; 
together with about $600 more for deputies who reported for 
duty, but did not serve. Other expenses, which cannot yet 
be given in detail, all the bills not yet having been received, 
will increase the expenditures incurred through this office to 
the aggregate sum of about $50,000. 

A just criticism of the law in relation to nominations and 
printing of ballots, is that the time for the preparation, print- 
ing, packing and sealing is too limited. A week's time is 
little enough after all the nominations are determined upon, in 
which to do this work for the City of Boston. 

In the opinion of the City Clerk, the number of voting pre- 
cincts might well be reduced from 286 to 200, on which basis 
there would be an average of only three hundred and fifty 
male voters to a precinct. By such reduction in number, a 
large amount of money would be saved to the City in provid- 
ing polling places and fitting them for occupancy, as well as a 
very considerable saving in the sum for the payment of 
election officers. lie also thinks that the number of election 
officers may be judiciously reduced. Four officers, of a proper 


degree of intelligence can easily perform the duties now im- 
posed upon six. By such proposed reduction in the number of 
precincts and of election officers, less than half the number of 
election officers now necessary, would be appointed, and a sav- 
ing of about $15,000 annually might be made. Two of the 
inspectors, who now act as ballot clerks, with an extra check 
list, could be dispensed with. Their duties could be performed 
by the other two who could have charge of the ballots, make 
one kind of a check on the list when a ballot is delivered to a 
voter, and another when he deposits his ballot. 

Expense of this office in the calendar year 1889 : Twenty 
thousand eight hundred sixty-three and -^ dollars ($20,863.74). 

Unexpended appropriation for the remainder of the fiscal 
year: Six thousand three hundred forty-eight and ^^^^ dollars 
($6,348.80). We shall be able to complete the regular work 
of the office for the year ending April 80, 1889, without 
further appropriation. 

JRecommendcUions : — Public Statutes, chapter 37, section 4, 
enacts that City Governments shall provide fire-proof safes of 
ample size for the preservation of books of record, registry, 
etc., and that the City Clerk shall keep in the safe so pro- 
vided all such books, etc. The safe connected with this office 
is very small indeed, and contains a very small portion of the 
City records. In my opinion, it is not fire-proof. The great 
books of the City Records and papers are arranged on shelves 
or cases about the rooms, and should the City Hall burn, the 
City would lose all its records and papers contained in this 
office, and the entire registry of mortgages of personal property, 
etc., would also be destroyed. 

I desire to say, also, that the business of the Department 
has entirely outgrown its present quarters. We have scarcely 


any room left to file away our papers and documents, and dur- 
ing the months when we prepare for elections, we hardly have 
room to move about. The arrangement of the offices is the 
poorest possible, every person having business with the Depart- 
ment (outside the registry room) is obliged to pass through 
the room occupied by the clerks who do the copying. This 
renders it almost impossible to do the work correctly, and as 
it must be correctly done, the papers often have to be re- 
written, causing a loss of time. I cannot too strongly con- 
demn the present accommodations. No sane business man 
would have every customer who visits his store, pass through 
his bookkeeper's room, yet this is in effect what takes place 
daily in this office. The office is so crowded that there is no 
room for more clerks, yet there are not enough to properly do 
the business of the office. The new election law has put a 
great amount of labor upon us, yet we have had no additional 
help, and at times, nearly every clerk in the office has been 
working on election matters, to the neglect of the rest of the 
City's business, and causing just complaint from parties and 
individuals having business with the Department. The election 
has, at the very least, put the work of the Department six 
weeks behind, and when the present force can hardly keep up 
the regular work, without interruption, it can easily be seen 
that we shall remain behind for some time. 

The office provided for the City Clerk is about 18 feet by 
27 feet, and in it are the desks of the City Clerk, the assist- 
ant City Clerk, and two employees, and also the type-writing 
machine which is continually being worked. Here also are 
received, on an average (placing it low) a hundred people a 
day, who have business with the Department. Of course, this 
number of people necessitates a great deal of talk, all of which 


is plainly heard by every one in the two offices, and every one 
is disturbed more or less. Nearly all the work of the last 
election requiring care and thought was done after hours or at 
home by the City Clerk or his assistant. I most strongly 
recommend that the two offices at present occupied by the 
Superintendent of Public Buildings be added to this depart- 
ment, and that this be done as soon as possible. 

Number of persons employed in this Department, 16 in all. 

The only ways that I can suggest of reducing the expense 
of elections are to reduce the number of polling places and 
the number of offices for each precinct, as hereinbefore 
stated. Should this be done, I doubt if the ballot boxes 
recently furnished by the State would be large enough to con- 
tain the ballots cast, in which event, the City might have to 
purchase new boxes. 

On the subject of elections, there is much that might be said 
and many recommendations that might be made, that are not 
included in the scope of the present report. 


City Clerk. 


Collector's Departbient, Crrr Hall, 

December 28, 1889. 
To His ffonor the Mayor. 

Sir: — The total receipts in this Department from January 1, 
1889, to December 24, 1889, inclusive, were 915,500,161.54, from 
the following accounts: — 




Cochituate Water Rates 

Liquor Llceuses 

Mystic Water Rates 

County of Suffolk . 

Sale Beacon-Hill Reservoir 

East Boston Ferries 


Sewer Department . 

Soldiers' Relief 

Public Institutions 

City Hospital . 

Interest . 

Sale of Armory Site 

Health Department . 

School Instructors . 


Mt. Hope Cemetery 


Police Department . 

Overseers of the Poor 

Street Department . 

Police Charitable Fund 

Public Library 

" Legacy J. Ingei 

All other sources 

soil Bowditch 

$11,511,154 06 

1,372,302 45 

891,064 00 

319,099 79 

302,445 28 

150,000 00 

139,443 65 

123,921 88 

90,530 78 

85,966 00 

61,926 62 

51,404 38 

48,042 92 

42,478 20 

41,415 29 

40,350 62 

27,258 91 

22,684 44 

21,582 08 

16,976 50 

15,725 26 

12,347 22 

12,379 70 

10,427 25 

10,000 00 

79,234 26 

$15,500,161 54 


A general anmniary of the accounts shows that 
the balance of bills and assessments outstand- 
ing January 1, 1889, were .... $2,675,901 78 

The assessments from January 1, 1889, to De- 
cember 24, 1889 13,156,248 86 

Cash Deposits from January 1, 1889, to De- 
cember 24, 1889 2,708,402 90 

Total amount charged to Collector . . $18,540,553 54 

Of this amount, the Collector is credited with 

Abatements .... $391,277 43 

Cash paid the City Treasurer . . 15,500,161 54 

15,891,438 97 

Balance uncollected $2,649,114 57 

The amount expended under the appropriation, excluding the 
draft of January 1, 1889, and including that of January 1, 1890, 
is $60,316.29. The balance unexpended is $15,437.55, sufficient 
to continue the work to the close of the fiscal year. There has 
also been expended $6,290.54 on account of advertising and ex- 
penses attending sale of real estate for unpaid taxes ; and there 
remains in the Treasury $5,629.97 to the credit of Deeds and 
Eeal Estate Advertising; on account of liquor licenses ($300 
allowed by ordinance) there has been paid $57 ; and for election 
expenses and charged to that account by special appropriation, 

By Section 8, Chapter 81, Revised Ordinances of 1885, the 
water rates of the Mystic supply are made payable at the branch 
office of the Water Registrar in Charlestown. These rates should 
be paid at the Collector's office in City Hall. The expense at- 
tending such a change would be added to the appropriation for 
the Collector's Department, and would be simply a transfer, as it 


would lessen by so mach the amount now paid by the Water 
Board on account of the Mystic supply. 

The uncollected accounts annually reported by the Collector 
as assets, from the 3'ear 1822 to August 9, 1875, the date of 
the establishment of this Department, have been reduced to a 
small amount, and are of little or no ^alue. The larger por- 
tion were outlawed long before tlie Collector's office was created. 
I would suggest, subject to your approval, that the City Coun- 
cil consider the propriety of relieving the Collector from further 
responsibility for these accounts. 

For the time above mentioned they amount to about $250,000, 
and there are other charges of a like nature to the year 1883, 
and amounting to about 115,000, which I recommend for like 


City Collector. 


Office of the Superintendent, 

December 27, 1889. 
To His Honor the Mayor. 

Sm : — Owing to an early spring and the length of the warm 
season, the continuous rain-storms, and the addition of newly 
acquired parks, the ordinary expenses of the Department were 
increased, and, with many other demands for work, I have ex- 
hausted the general appropriation. The amount expended of 
the general appropriation from January 1, 1889, to December 
81, 1889, is $76,740.84, of which the following ai*e the chief 
items : — 


Labor and Superintendence ^4 1,565 40 

Sods • . . . 4,899 80 

Bed Gravel 4,224 22 

Bine Gravel, Sand, etc 2,707 26 

Teaming 4,163 36 

Loam 2,337 39 

Which amount to $59,397 48 

Leaving a balance of 17,343 41 

which has been expended for incidental and other work of the 

Out of the above amount of $76,740.84 I have been obliged 
to expend the following large amounts for extra work and nec- 
essary stock for which no provision was made in the general 
or special appropriations : — 

Bepairs on Gravelled Walks, made necessary by unusual rain- 
storms $6,481 75 

Bepairs on Concrete Walks, South Boston .... 600 00 

Street Trees, trimming, removing, etc. . .  . . 2,430 97 

Finishing Franklin Square 1,143 72 

Bepairing bronze railing and iron fence 163 89 

Building new greenhouse 400 00 

Painting fences, Concord and Butland Squares . . . 128 92 
Bemoval of the Gravelled Walks around the pond in the Pub- 
lic Garden, filling in with loam, sodding, planting new 

shrubbery beds, labor, etc. 5,200 00 

Bepairs on Plank Walks, labor, etc., for various squares 500 00 

Court expenses (accident Madison Park) .... 306 10 

Carriage (new) 200 00 

Horse purchased, ^300; horse exchanged, $100 . . 400 00 

$17,955 35 
The general appropriation is now reduced to $625.73. 


Were it not for the extra work forced upon me, I would have 
a balance of at least $18,581.08 on hand, which amount 
would enable me to carry on the work of the Department 
properly for the remainder of the financial year. I trust the 
City Government will see its way clear to reimburse this 
amount to the Department. I have deemed it my duty to 
suspend all the employees of the Department, with the excep- 
tion of two or three persons to keep the valuable stock of 
plants in the greenhouses from freezing up. 

Under the Special Appropriations, Concord and Rutland 
squares were thoroughly renovated at an expense of $8,770.17, 
and their condition is entirely satisfactory to residents and 

The sum of $1,000 has been expended in furnishing a bronze 
railing, renovating the lawn, making walks, grading, etc., 
around the Attucks monument. 

The sum of $800 has been expended for curbing and other 
improvements in City square, Charlestown. 

Norris Park, South Boston, has been put in as good con- 
dition as the amounts appropriated therefor at two different 
times, viz. : $5,700, would permit. There is now on hand a 
balance of $54.84. 

The asphalt tile walk from Park square to Park street has 
been satisfactorily completed, at an expense of $6,000. 

On Belmont square, £ast Boston, two asphalt tile walks 
have been laid at a cost of $1,300. Balance of appropriation, 

The appropriation of $10,000 for Blackstone and Franklin 
squares has been exhausted, . and the additional sum of 
$1,143.72 has been expended from the regular appropriation. 
In the spring it will be necessary to incur an outlay of about 


93,000 more for loam in order to bring these squares up to 
their proper grade. 

The little squares in East Boston are in a wretched conditioh 
and should be put in order. 

The stone curbing around the pond in the Public Garden has 
always been looked upon as objectionable, and to get rid of 
it the Board of Aldermen a few years ago passed an order 
appropriating $1,500 to have it displaced and the sward 
brought to the water, but the Common Council failed to 
concur. As the edging has become disrupted, it should be 
removed and an appropriation, such as the Board of Aldermen 
passed, should be made for filling its place. 

The skaters on the pond in the Public Garden are not suffi- 
ciently controlled by official authority. Only within a few 
years has the pond been open to skating, and since then only 
have I had any serious , complaint to make. I respectfully ask 
your Honor to appoint a sufficient number of special officers 
for the public grounds, to be placed on duty under the 
Superintendent of Common and Public Grounds. 

The Common, with its wealth of lawn and shade, holds its 
own well as the leading health spot of the Department. Its 
main avenues, however, need a different road-bed, as they are 
always in a wretched condition after thaws and storms. 

The removal, relaying, material, and work on the plank 
walks are a large item of annual expense, and with the ad- 
ditional outlay for red gravel, the walks of the Department 
are very expensive. From eleven years* experience with this 
particular work I am comdnced that every walk on the Com- 
mon should be concreted. 

The asphalt tiles laid in the walk from the Park square 
entrance on the Common to West-sti'eet gate, and from there to 


the Park-street gate, have filled a want long felt, and are 
generally commended. The avenue leading from Arlington 
street over the bridge on the Public Garden to Charles street, 
and from Charles street by Monument Hill to the West-street 
asphalt walk, is one that should be immediately placed in the 
same condition, as also should the Tremont-street mall from 
West street to Boylston street. 

Our street trees are in a most deplorable condition. 

The costly tropical plants displayed in the Public Garden and 
squares during the past season have all been safely returned to 
greenhouses, where they will remain until again required for the 
gratification of the public. There is no public collection of 
plants in this country to equal that owned by the City of Boston. 

Your obedient servant, 




Pemberton Square, January 1, 1890. 
To Hia Honor the Mayor, 

Sir : — In compliance with the request contained in your com- 
munication of the 23d ultimo, the Commissioners for the erection 
of a New Court-House for the use of the courts of the Common- 
wealth within and for the County of Suffolk, and for a Registry 
of Deeds and a Registry of Probate for said County, have the 
honor to submit herewith a statement of the progress of the work 
under their charge. 

During the past municipal year, a marked advance has been 
made in the completion of both the northerly building and the 
main structure. The brick and stone masonry of the main build- 


ing, with the exception of that connected with the central hall, 
is nearly completed, and the interior walls are ready for the 
plasterers. The plastering and stucco work of the northerly 
huilding is finished, and the carpenters' work in this section is so 
far advanced as to make possible its occupancy by July of the 
present year. 

The principal contracts made during the year include those for 
the heating and ventilation, and the marble work for both build- 
ings, the plastering, the carpenters' work, and the plumbing of the 
northerly building, the copper roof, and the iron stairs of the main 
building. The important contracts to be made during the coming 
year are those for the stone work of the vestibule and main hall, 
the carpenters' work, and the plastering of the main building. 

The balance of the appropriation on band January 1, 1889, 
was $521,937 60 

The payments daring the year have been .... 496,259 57 

Leaving a balance on hand of $25,678 03 

The total appropriations made to this date have been . . $2,498, 845 00 

The payments hare been : — 

For the site, in fidl $1,056,469 69 

For construction 1,416,697 28 

Balance on hand 25,678 03 

$2,498,846 00 

The contracts made on account of the buildings and the mis- 
cellaneous expenditures incurred to this date amount to . $1,814,990 59 
On which there has been paid, as already stated, the sum of . 1,416,697 28 

Leaying a balance due contractors for work in process of 

completion of $398,293 81 

To provide for payments on contracts made and to be made, 
the City Council were requested in November last, under the 


provisions of Chapter 101 of the Acts of the Legislature of 
1887, to issue an additional loan of $800,000. 

As required by law, the work upon the buildings is being 
done by contract, the number of contractors at the present 
time being fourteen. 

In addition to the commissioners, there are employed an 
office janitor, an engineer, and three assistants for the heating 

Respectfully submitted, 




Office of Crrr Engineer, City Hall, 

December 27, 1889. 
To His Honor the Mayor.- 

Sib: — In reply to Circular 85, of December 23, 1889, the 
following is a summary of the work of the City Engineer's Depart- 
ment for the year 1889 : — 


The inspection of the highway bridges in the City has been 
made, and the superintendence of structural repairs upon those 
maintained by the City has been attended to during the year. 

Leyden-street bridge, over the Boston, Revere Beach, & Lynn 
R.R., on Breed's Island, was built this year. It is a substantial 
iron bridge, on stone abutments, and cost $15,819.55. 

Byron-street bridge, in East Boston, was built this year. It 
is a wooden bridge over the Boston, Revere Beach, & Lynn R.R., 
and cost about $4,000. 


Cottage-street bridge was bailt this year. It is a wooden foot- 
bridge over flats in East Boston, is 12 feet wide, and 3,546 
feet long, extending from Jeffries Point to Wood Island, and 
cost about $12,000. 

Bolton-street bridge, over the New York & New England R.R. 
in South Boston, was built this year, and is a small wooden 
bridge, costing about $850. 

Neponset and Granite bridges, over the Neponset river, have 
had the passage-ways for vessels widened to 36 feet, as directed 
by the Commonwealth, at a cost of $7,997.41 to the City of 

It will be necessary to change four draw-bridges over the 
upper part of the Charles river during the coming year, in order 
to comply with the Act of the Legislature. 

The following-named bridges are in a dangerous condition, 
and should be rebuilt : — 

Federal-street bridge, over Fort Point Channel ; Chelsea-street 
bridge, over Chelsea Creek ; Ferdinand-street bridge, over B. & 
A. R.R. ; Berkeley-street bridge, over B. & A. R.R. 

Water- Works . 

The Wan'en bridge section of 30- inch and 16-incb mains to 
connect Charlestown with the Cochituate high and low service 
has been laid. 

A 20-inch main to connect Parker-Hill Reservoir with the 
high-service system in the City proper, is nearly completed, and 
a 16-inch high-service main has been laid from Parker street 
to Egleston square. 

The laying of the water-pipes to connect Long Island with 
the City water supply shas been completed.. 


On the Ck>chituate Division 292 hydrants have been estab- 
lished and 140 abandoned. 

About 22.3 miles of new mains have been laid on the Cochitu- 
ate Division, and 1.7 miles of old mains have been relaid. On 
the Mystic Division ^ mile of new mains has been laid, and 1^ 
miles of old mains has been relaid. 

The East-Boston Pamping-station and the East-Boston sup- 
plementary high service for the supply of Breed's Island hate 
been completed. 

Storage Basins. 

Work has been commenced on a new dam at the outlet of 
Lake Cochituate. Surveys are being made of the proposed 
basin on Indian Brook, and for the development of Whitehill 
Fond. The Town of Framingham has practically completed its 
sewerage system, and it is now in operation, although as yet but 
few connections have been made with it. 

The Town of Marlboro' is actively engaged in perfecting a 
plan for its sewerage system and it is expected that tbey will 
commence construction early the coming year. 

Experimental works for filtration investigations are being 
established at the Chestnut-Hill Reservoir, and it is expected 
that in connection with the biological laboratory much informa- 
tion will be obtained which will be of value in devising methods 
for improving our water supply. 

The dam at Mystic Lake has been repaired, and an independ- 
ent air pump and condenser for Engines Nos. 1 and 2 at the 
Mystic Pumping-station has been contracted for. 

For the Park Department plans and specifications of various 
engineering structures have been prepared, and the inspec- 


tion and superintendence of their construction has been at- 
tended to. 

At Charlesbank the g^'mnastic apparatus has been erecU'd. 
Curbstones and paving blocks for the Parkway and Franklin 
Park have been purchased. 

At the Marine Park four spans have been added to the Iron 
Pier, and one additional span to connect with the Pier Head 
has been contracted for. 

The Pier Head is now being constructed, and work is pro- 
gressing under a contract for filling the portion of the Park 
south of Broadway. 

Improved Sewerage. 

By an Act of the Legislature approved May 9, 1889, the 
Hoard of Aldermen was authorized to extend the construction 
of the Improved Sewerage System. The City Engineer was 
directed to proceed with the necessary surveys and investi- 
gations, and on September 30, 1889, he was directed to pro- 
ceed with the construction of the sewers in accordance with a 
plan adopted by the Board. 

Contracts have been let for the construction of Sections 8 
and 9 of the South Boston Intercepting Sewer, Section 3 of 
tlie Dorchester Intercepting Sewer, and Section 1 of tlie 
Brighton Intercepting Sewer. Work is now actively progress- 
ing on these sections and they will be completed in the autumn 
of 1890. Investigations and surveys are now being made for 
the further extension of the Intercepting Sewers at the North 
End and for the extension of the Dorchester Intercepting 
Sewer to Lower Mills. The work will be put under contract dur- 
ing the coming spring, so as to insure its completion in 1891. 

The plan of the extension as submitted contemplates the 


constniction of about six miles of sewers, and it is belieyed 
that the completion of this extension of the Improved Sewerage 
System will remedy many of the nuisances now existing. 

The actual expenses of the Engineer's Department from 
January 1, 1889, to January 1, 1890, are 835,610.20; of the 
Improved Sewerage Extension, $18,456.45. 

The unexpended appropriations for both the Engineer's De- 
partment and the Improved Sewerage Extension are sufficient 
to continue the work to the end of the fiscal year. 

The total number of persons now employed in the Engineer's 
Department is 20, and the total number on the Improved 
Sewerage Extension is 18. 

Respectfully submitted, 


City Engineer, 


Office of the Board of Directors of East Boston Ferries, 

December 27, 1889. 
Hon. Thomas N. Hart, Mayor, 

Sir: — Id compliance with your request for information, as 
stated in Circular 35, the Board would respectfully report as 
follows : — 

1st. Only the ordinary work has been done for the year 

2d. The actual expenses for the year have been as fol- 
lows : — 

Salaries and Wages <>126,764 22 

Current Expenses 20,624 33 

Fuel 31,831 68 

Carried forward, $179,220 23 


Brought forward, $179,220 28 

Supplies 8,596 78 

Repairs on Boats 9,780 16 

Repairs on Buildings, Drops, and Piers .... 6,804 71 

Incidental Expenses 555 90 

Vacation for Employees 4,062 46 

Tools and Fixtures 115 61 

Damages, viz. : — 
Paid to Cornelius Roach, order of City Council, $3,000 00 
Paid to Lincoln Wharf Co., on Execution of 

Court 8,544 97 

Paid Claims, order of Committee on Claims . 963 50 

Paid for Medical Attendance, etc. ... 18 00 

12,526 47 

Total $220,662 32 

3d. The unexpended appropriation of $57,160.41 will meet 
all of our ordinary expenses to the end of the fiscal year. 

4th. The Board would respectfully but earnestly recom- 
mend that attention be called to the immediate necessity of 
having increased facilities for this Department, so that the 
increased travel can be properly accommodated. 

It is the opinion of this Board that a special appropriation 
of $500,000 is the amount actually needed to make the desired 
improvements, to be expended as follows : — 

For Property on each side of the North Ferry . $200,000 00 

For two New Ferry-boats 100,000 00 

For two New Slips 60,000 00 

For two New Drops and Tanks 30,000 00 

For Alterations of Present Slips 20,000 00 

For New Head-House on East-Boston side .... 30,000 00 

For Additions to Head-House on Boston side . . 10,000 00 

For Dredging 10,000 00 

For Contingent Expenses 50,000 00 

$500,000 00 


Allow us to say that in twenty years the travel has in- 
creased as follows : — 

From 16,070 to 27,874 foot passengers, daily. 
From 1,569 to 2,473 teams, daily. 

The recommendations made last year, for two New Drops, 
New Head-House and repairing of the Wharf on the East- 
Boston side of the North Ferry, we renew this year, as they 
are a necessity now, more than ever. 

5th. The number of persons employed is as follows : A 
Board of five Directors, without pay, and the following with 
pay : I Clerk of Board, 1 Superintendent, and 1 28 Subordi- 

Respectfully, for the Board, 




• Office of the Bo^bd of Fire Commissioners, 

December 27, 1*^89. 
To His Honor the Mayor, 

Sir: — Since January 1, 1889, to date, there have been 887 
alarms, besides the several alarms that called almost the entire 
force of Boston and considerable outside assistance to the confla- 
gration on Thanksgiving day. The loss incident to these alarms 
is not yet so far adjusted that the total can bo stated with any 
accuracy. Until the large fire occurred, however, the loss was 
undoubtedly smaller than the average for several yeara back. 

The expenditures of the Department for the twelve months, 
which include the draft for January, 1890, amount to $823,257.62. 
The appropriation for 1889-90 was $817,862 ; credits, $4,675.91 ; 


total, $822,537.91. The expenditures from May 1, 1889, to 
date, including the January draft were $580,998.70 ; balance, 
$241,539.21. The expenditures in the Fire Alarm Department, 
covering the same twelve months, were $34,893.40 ; appropriation 
for 1889-90, $35,054 ; expenditures from May 1, 1889, to date, 
$21,285.50, leaving a balance of $13,768.50, which will probably 
cover all demands upon this branch of tbe service for the re- 
mainder of the fiscal year. 

Previous to the great fire of Thanksgiving day, the Commis- 
sioners expected to be able to conduct their department, with the 
money appropriated, up to the first day of May, 1890 ; but that 
visitation, it need hardly be said, confounded all their previous 
calculations, owing to losses of apparatus and unusual expendi- 
ture consequent upon the extraordinary service that had to be 
performed. An estimated deficiency has been submitted to the 
Government of $34,500, to cover apparatus and equipment, and 
$2,5' )0 for extra coal and refreshments. With that assistance 
the Department should be able to finish the year, unless some 
unforeseen emergency arise. 

The Commissioners have made to the Citv Council some com- 
prehensive recommendations with a view to greatly increasing the 
efficiency of this Department, and their petitions have been met in 
a very friendly spirit. These recommendations contemplate a 
general strengthening of the Department in all sections of the 
City, and include a central headquarters, fire-proof, and of a 
capacity to accommodate the fire-alarm system and the offices of 
the Commissioners and the Chief, besides several pieces of nppa- 
ratus, and several other new houses and companies in various 
sections of the city. The amount necessary to carry out these 
improvements is estimated at $510,000, already appropriated. 
This increase of companies and apparatus will of course involve 


an increase in running expenses. With the new Department year 
all the companies in East Boston, South Boston, Charlestown, 
Roxburj, and parts of Dorchester should be made permanent. 
The Commissioners have asked for what the Department immedi- 
ately needs to perform its own proper duty ; but they also ask 
your Honor and the City Council to use your authority to effect 
reforms in the rules and laws regulating the width of streets, the 
height and construction of buildings, and the manner of running 
and maintaining all kinds of electric wires. These are problems 
which the Commissioners cannot solve unaided. 

The total number of persons now employed in this Department 
is 695, — a less number than formerly, for the reason that several 
companies have been made permanent, thus reducing the num- 
ber of men on the various rolls. 

The good feeling that has existed between all branches and 
grades of the Department still continues ; the discipline and 
morale were never better ; the drill school has been productive of 
excellent results, and it will make the force more and more effi- 
cient in the future. The houses of the Department were never 
before in as good condition as now, and with the double com- 
panies, increased service, and new and improved apparatus asked 
for, the Department will be on a basis to command the confidence 
of the public to a greater extent than ever before. 

For the Board of Fire Commissioners, 





Office of the Boabd, 

12 Beacox Street, December 28, 1889. 
To His Honor the Mayor, 
Sir: — In compliance with your request the Board of Health 

respectfully submits a statement of the work performed by 
the Department during the present calendar year, the facts as 
to its financial condition, and such recommendations as it 
deems proper for the greater efficiency of the Department. 

The actual expenses of the Department for the calendar 
year, excluding the draft of January 1, 1889, but including 
that of January 1, 1890, have been as follows: — 

Board of Health Salaries ^,000 00 

Clerk Hire 9,502 18 

Messenger 698 00 

Inspectors of Nuisances 21,577 33 

Inspector at Abattoir 1,495 53 

City Physician and Assistants 4,025 00 

Small-pox Hospital 2,548 41 

Disinfection 6,697 54 

Nuisances 6,046 11 

Urinals 6,417 22 

Burial Grounds 4,776 48 

Contingencies 2,188 B% 

Vaccination Virus 341 08 

Horse and Vehicle, Board of Health 631 15 

Horse and Vehicle, City Physician 991 72 

Stationery 293 86 

Printing 912 22 

Advertising 56 90 

Quarantine 16,075 07 

Public Baths 16,084 31 

Evergreen Cemetery 2,426 46 

Total $111,685 10 


The unexpended balance of the appropriation for the Board 
of Health Department, excluding the January draft, is $16«- 
602.23. Owing to unusual expenses on account of small-pox, 
that item has exceeded the amount appropriated for it. An 
amount not exceeding S2,500 may be required to meet the 
expenses of the financial year in addition to the regular ap- 

The foregoing statement relates to the Board of Health 
appropriation alone. The appropriation for the Quarantine 
Department ($16,500) ; that for the Bathing Department 
($16,000) ; and that for the Evergreen Cemetery ($1,500) 
will in each case be ample to meet the expenses in these 
several departments. 

The health of the City, as indicated by the statement of 
mortality for the year, has suflfered no deterioration. The 
total number of deaths for the year 1889 (estimating the mor- 
tality of the next three days) is 10,146, as compared with 
10,197 in 1888, making the annual death-rate for each one 
thousand inhabitants (estimating the population of the city 
at 420,000) 24.15 against 24.57 for the previous year. Of 
the total number of deaths, 19.56 per cent, were from causes 
which arc classed as preventable, the most prevalent of these 
being diphtheria, which accounts for 556 deaths ; cholera in- 
fantum, 451 deaths; and typhoid fever, 183 deaths. There 
were 1,414 deaths froti consumption; 856 from pneumonia; 
435 from bronchitis ; and 767 from heart disease. The deaths 
of children under five years of age were 35.58 per cent, of 
the total mortality. 

There has been no epidemic in the City during the year, 
excepting the present one of influenza which, although not 
fatal in its character by itself, is nevertheless serious in the 


amount of sickness and disabUitj which it is occasioning. It 
is not a disease which can be reached or controlled by public 
health authorities. 

8mall-pox, from which the City had been exempt for a long 
period, reappeared here in October under the most unfavor* 
able circumstances. The ten cases discovered were in crowded 
tenement-houses, where a large number of people were ex- 
posed to the contagium. By prompt attention, however, the 
disease was prevented from spreading, and it has been wholly 

During the year the Board of Health, at the request of the 
City Council, made a special examination of the 181 school- 
houses of the City with special reference to their facilities for 
ventilation, and their condition in this and other respects was 
fully set forth in a report to the Honorable City Council. The 
recommendations therein made ought to receive the early atten- 
tion of the City Grovernment. 

The rapidly-increasing work of the Department calls for a 
larger number of inspectors than the Board now has at its com- 
mand, and in order to meet the demands made upon it the 
Board will ask for such an additional appropriation for the 
next financial year as wQl enable it to prosecute its work more 

With the cooperation of other Departments the Board will 
also ask for such change in the law as will enable the City to 
secure a better sanitary condition of the private i)assageways 
throughout the City, which now receive such attention only as 
each abutter gives them. 

The Board renews its recommendations that hospital accom- 
modations be provided for the treatment of contagious diseases, 
and the isolation of infected persons, such accommodations to 


be under the Bole charge of this Board. It is only by such 
accommodations that the spread of these diseases can be pre- 
vented, and the excessive mortality from them reduced. 

The total number of persons now employed in this Depart- 
ment is as follows: — 

Board of Health roll 45 

Public Baths : — 

In winter monthB 8 

Quarantine 12 

Eyergreen Cemetery : 

In winter months 1 

Total . . ; 60 

Following is a summary of the work performed by the Depart- 
ment during the year: — 

The number of ifispections of houses and the places where 
nuisances have been complained of, is 12,853, the most of which 
have required more than three visits. 

The number of tenement houses examined several times each 
is 6,982. 

The number of school-houses examined is 181, and of this 
number 163 were measured and especially examined and re- 
ported to the City Council. 

The number of ungrounded complaints against private prem- 
ises, 901. 

The number of courts, lanes, yards, vaults and cellars and 
houses disinfected is 90,122. 

The number of dwellings found to be unfit for habitation and 
ordered to be vacated after many unsuccessful efforts to obtain a 
remedy is 128. 


Of the 21 pablic urinals the ordinary repairs have been supple- 
mented this season by the repainting of ten. 

The care of the 17 cemeteries has been considerably extended 
by the removal of superfluous trees and shrubbery, and a more 
scrupulous cleaning up of the grounds. 

The number of death certificates examined and burial permits 
given after such examinations from January 1, to December 27, 
is 10,009. 

The number of permits given for the removal of bodies from 
our cemeteries is 828. 

The number of fish pedlers' carts and the carts of grease col- 
lectors examined monthly with respect to their cleanliness and 
for the renewal of their licenses w.hich are granted for one month 
at a time is 940. 

The number of petitions received for the occupancy of stables 
is 230, of which number 33 were granted leave to withdraw. 
At the request of remonstrants hearings were had in 62 cases. 

The matter of paving, repairing and other work in alleyways 
and on vacant lots has required a large number of hearings. 

The number of cases of contagious diseases investigated by the 
City physicians is 2,000; the number vaccinated free of charge 
2,501 ; medical visits in the county jail 1,500; medical examina- 
tions of candidates for Police and Fire Departments 345 ; medi- 
cal visits at the Chardon-street Home 80. 

An examination into the cause of death, where no physician 
was in attendance, was made in 530 cases. 

The number of cases of contagious diseases among domestic 
animals investigated at the Abattoir, such as glanders and 
hydrophobia, is 9. 

The Lying-in-Hospitals and Baby farms, 20 in number, have 
been licensed and inspected, as usual. 


The Public BaUi-houses, 17 in namber, were placed in use in 
June ; UBed by 780,744 persons ; and towed to winter quarters 
for repairs in October. One new house is now under construc- 

The total number of vessels inspected in Quarantine is ^1 ; 
the number requiring disinfection, 12 ; the number of immi- 
grants vaccinated, 315 ; number of persons removed from vessels 
to the hospital, 9. 

The hospitals at Gallop's Island have been painted and 

The number of cattle inspected at the Abattoir is 49,657; 

Calves, 20,955; Sheep, 398,808. Meat inspected: Beef, 30,935 

lbs.; Veal, 21,027 lbs.; Mutton, 368,537 lbs. Seized: Beef, 

670 lbs. ; Beef livers, 188. This inspection, which has been 

going on for 12 years, has until October 1st, 1889, been done by 

officers not scientifically trained for the work ; but on October 

Ist, we instituted a more careful inspection of the animals and 

meat by a graduated veterinary surgeon whose vigilance and 

scientific work will prove of much value in detecting unhealthy 


Very respectfully, 

The Board of Health, 

SAMUEL H. DURGm, Ckairman. 


Office of the Scpebimtekdemt of Health, 

12 Beacon Street, December 28, 1889. 
To His Honor the Mayor. 

Sib : — In compliance with your request of the 23d Inst. I 
respectfully submit the following statement: — 


The work of the Health Department has been of the usual 
routine nature. There have been collected during the past 
year 227,825 loads of ashes, 70,476 loads of dirt, and 40,183 
loads of offal. 

In the Rozburj, West Rozbury, Dorchester, and South 
Boston districts the collection of ashes and garbage should be 
done with more regularity. To do this work properly, ad- 
ditional men and teams are needed. In the South district ^ 
there should be added 6 offal teams and 12 men, 10 ash teams 
and 20 men'; at the West district, 2 ash teams and 4 men, 

4 street-cleaning teams and 8 men; in the Rosbury district, 

5 ash teams and 10 men, 4 offal teams and 8 men. 

The cost of the additional horses, harnesses, feeding, shoeing 

horses, and labor, would be about $52,000. 


iStreet Cleaning. — More work has been done than ever be- 
fore during the past year, but the result has not been satis- 
factory. The streets cannot be kept in a cleanly condition 
tintil a stop is put to the horse railroads distributing gravel on 
their tracks; the sweeping of debris from stores into the 
streets; and the distributing of advertising cards, handbills, 
and posters. These advertisements are handed to passers-by 
and by them thrown into the street; the result is a litter of 
paper in the street. 

An additional street-cleaning gang could be used to advan- 
tage. There is a call for more service of this kind in portions 
of the City. The gang necessary for this work should be 
2 sweeping-machines, 1 water-cart, 7 carts, and 35 men. This 
would cost about $28,000. 

This Department owns three teams which are employed in 
the conveyance of prisoners from the several station-houses to 
the Court-House and the boat. The teams should be under the 


charge of the Board of Police. I would suggest that they be 
transferred to said Board. 

It is necessary that another Barney Dumping Barge should 
be purchased or leased, and additional wharf accommodation 
secured at once, as the dumping-grounds used by this Depart- 
ment are nearly filled. 

A new offal depot is needed ; the one in Bozbury, adjoining 
the Marcella-street Home, has become a nuisance to the 
neighborhood. The depot on Albany street we have outgrown. 
A new depot could be built on land owned by the City away 
from dwelling-houses, which would be convenient to both Box- 
bury and City teams'. 

The total number of persons employed in this Department is 

The actual expense of this Department for the year ending 
January 1, 1890, is $486,828.18. 

Amount of appropriation 1889-90 . . . $500,000 00 
Amount expended to January 1, 1890 . . 334,275 82 

Balance of appropriation .... $165,724 18 
The balance of the appropriation will be sufficient to do the 
work of the Department to the end of the fiscal year. 



Superintendent of Health. 


Cttt Hospital, December 27, 1889. 
To His Honor the Mayor. 

Sib : — In accordance with your request of the 23d inst., I have 
the honor to present the following brief statement of the work and 


expenditures of this Department daring the past year, from 
January Ist to date: — 

There have been treated in the wards 6,308 patients, as against 
5,800 for the corresponding period of last year. The number of 
accidents have been 2,148, as against 1,770 for the previous year. 
The number of deaths have been 784, as against 776 during 1888. 

The general character of our work has been, of course, the 
same as that in previous years, and there has been no special 
feature worthy of mention in this connection, except that the 
number of accidents and typhoid fever patients has been much 
lai^er than usual, and the contagious diseases, especially scarlet 
fever, have been very much less. 

The increasing demand upon the Hospital for treatment of 
larger numbers of patients each year, without a corresponding 
increase in the number of beds, renders it necessary that a selec* 
tion of cases should be made ; and in giving the benefits of tibe 
Hospital to those admitted, it must necessarily follow that privi- 
leges are given to those who need it in the greatest degree, that 
is to say, those who are the most ill. This renders the character 
of the service more active, more acute, more expensive, and ulti- 
mately requires more money to care for the same number of 
patients than it would in some previous years where larger num- 
bers of patients have not been so ill, and did not require so much 
labor and care. 

There has been expended, during the present calendar year to 
date, $213,958.64. The appropriation for the present fiscal year, 
together with interest on trust funds, amounts to $230,510.42. 
There has been expended, during the present fiscal year to date, 
S156,309. The balance will be ample to carry us through the 
present year. 
During the past year, the new building for the Out-patient 


DepartmeDt, which will also be used as a new entrance office 
to the Hospital, has been completed. The appropriation for 
famishing came so late in the year, and as the f umitare neces- 
sary for such a peculiar building had to be made to special 
order, the building is not yet occupied. I am happy to sa}-, 
however, that everything is now nearly ready, and we shall 
undoubtedly occupy it within two weeks. The appropriation for 
this purpose was $8,950. There has been expended $3,311.85, 
leaving a balance of $5,638.65, which will be enough to furnish 
the building ready for use. 

It is confidently expected that this building will be superior to 
any other in this City, for the purposes for which it is intended, 
and wQl prove of great value and use in the relief of such of 
the sick poor as are not ill enough to be received into the 

Most out-patient departments connected with general hospitals 
in other large cities, are used as ^'feeders" for the hospital 
wards, and are largely maintained with a view to furnishing 
'< material" for the clinical instruction of medical students. It 
has been our fixed policy here to use our Out-patient Department 
as a relief to the wards, and to avoid, if possible, the admission 
of such patients, thus obviating the boarding and nursing. It is 
confidently expected that the arrangements about to be estab- 
lished will enable us to treat a larger number of patients than 


heretofore, with more beneficent results, and with greater relief 
to the public. 

We have continued our usual policy of renovating and purify- 
ing the Hospital wards and various departments during the past 
year. It is impossible to keep a house, habitually devoted to the 
care of the sick, in good sanitary condition, without pursuing 


this fixed policy. While it is expensive at the time, it is an- 
doabtedly economy in the end. 

As to the needs of the Hospital prospectively, I beg to 
suggest the following, which, in the main, have either been 
formally asked for, or have been referred to in print: — 

First: An electric light plant, for the purpose of lighting 
the Hospital by electricity. The arguments in favor of this 
have been presented both in the annual report of the Trus- 
tees and Superintendent, and in the annual estimates for this 
year the Trustees asked for $27,000 for the purpose of 
building such a plant. Our gas bUls this year will amount 
to nearly $7,000. Every means has been attempted, that is 
possible, to reduce the consumption of gas, but the entire 
establishment must bum, during every night of the year, a 
certain amount of gas; and a large amount of night work, 
both in emergencies and in the regular routine, renders it im- 
possible to avoid the use of a large amount of gas. It can 
be readily shown that the money expended and paid to the 
gas companies for three or four years' consumption, would 
amount to more than the first cost of a sumptuous electric 
plant. The avoidance of dangers from fire, the quality of 
light, the greater healthfulness of electric light over gas light, 
and the annual cost of maintenance, are all in favor of elec- 
tricity. Nearly all hospitals of any si^e are now using 
electricity, both in our own City, and in other cities. 

Second: The Annex to the central building. In the esti- 
mates furnished by the Trustees for the present fiscal year, 
there was included a request for $18,000 for the purpose of 
creating additional room for Hospital purposes, — a dining- 
room for Officers and House Staff, a medical library, library 
for patients, consulting-room for the Medical and Surgical 


Staff, and sundry other purposes. The Hospital has lately 
received legacies for the promotion and increase of the medical 
library. It also has a fund for a medical library for 
patients ; but there is no suitable room, owing to the crowded 
condition of the Hospital, in which to place such a library. 
The Administration building has outgrown its capacity, and 
some relief must very soon be had. Such a building as has 
been proposed by the Trustees would accomplish all these 
purposes, and give us very great relief. If public benefactors 
liberally bestow upon the Hospital funds for such purposes, 
it would certainly seem reasonable that the City should pro- 
vide accommodations to carry out the wishes of the donors. 
Third: The acquisition of additional land for Hospital pur- 
poses. The Trustees, on December 16th, presented a memorial 
to the City Council in regard to taking possession of lands 
between East Springfield street and East Chester park, lying 
between Albany street and Harrison avenue. The City has the 
right, under a special act of the Legislature of 1889, to take such 
land. It could never be acquired at a more reasonable prioe than 
at the present time. Land must inevitably be had, not only for 
present, but for the future wants of the Hospital, not many years 
hence. The growth of the Hospital is evidently in the direction 
of this land, and every argument seems to point in the direction 
of acquiring this land. 

Fourth: A Home for Convalescent Patients. On September 
12th an Order was passed by the City Council, which was referred 
to the Committee on the City Hospital, directing them to report, 
— ^^ first, on the expediency of establlsMng, in connection with 
the City Hospital, a Home for convalescent patients ; and second, 
to recommend a suitable site." It is obvious that a Convalescent 
Home is desirable. Such Homes now exist in connection with 


other hospitals of this City, and althoagh not so common in this 
oonntry as in Earope, exist in considerable nambers. It is im- 
possible, except at considerable length, to foUy show the difficul- 
ties incident to the care of convalescent cases, after partial 
recovery from acute disease or injury. The demand upon the 
Hospital for acute oases and accidents has become so great that 
the alternative now exists either to refuse the admission of such 
needy cases, or to push patients partly cured or recovered, out of 
the Hospital. There are very large numbers of patients who are 
willing and ready to resume work when able, but are without 
suitable home accommodations, — such as mechanics, workmen, 
salesmen, domestics, and the like, who barely have money enough 
for more than one or two weeks* support. The City has no place 
to provide for such cases, other than to treat them as paupers, 
and send them to Rainsford's Island. If a suitable place existed, 
where such patients could go and stay from one to three weeks, 
away from the atmosphere of the sick-ward, where they would 
enjoy good air, good food, and recuperate, on leaving the Con- 
valescent Home, they could immediately resume their work. 

The Trustees, or myself, have visited about twenty locations 
within the City limits, and have spared no pains and trouble to 
find a suitable site. The Trustees now, however, are prepared to 
recommend the purchase of an estate in Dorchester, near Milton 
Lower Mills. The estate is at present the property of Asaph 
Churchill. It is on the eastern side of Dorchester avenue, and is 
an irregular shaped piece of 653,400 feet, running eastward, nearly 
to the Shawmut branch of the O. C. B.R. The estate already has 
a three-storied house, occupied by the present owner, which cost 
$20,000. There are also bams, and other out-buildings. Part of 
the estate is improved, and part is woodland. It possesses many 
points desirable for the location of a Convalescent Home. It is 


retired, is sighUj, is near City water and sewerage, has good 
views, and is so located that a Convalescent Home could be bailt 
upon it. at the present time, leaving sufficient land, where, in the 
future, if thought desirable, a Home for Incurables might also be 
buUt. This land has been bonded for a limited time, is assessed 
for $20,000, and the price asked by the owner is $30,000. 
This, in the judgment of the Trustees and experts who are 
familiar with the prices of suitable locations, seems to be not 
only reasonable, but very cheap. It is so situated that patients 
could get into the horse oars at the Hospital door and go directly 
to the entrance to these grounds. 

Fifth : A new stable has been recommended for six consecu- 
tive years, and the demand is more urgent now than in any pre- 
ceding year. Our accommodations for both man and beast 
are wretched ; and while other Departments of the City have 
asked for and obtained suitable stable accommodations, our 
necessities yet remain. 

I have the honor to be, 

Your obedient servant, 

G. H. M. ROWE, 

SuperitUendewt and Beddenl Physician. 


Office of the Commissioners, 

14 Beacon Street, December 28, 1889. 
To His Honor the Mayor. 

Sir : — In compliance with Circular 35 I have the honor 
to present the following information and recommendations. 


Deebt-Islakd Institutions. 

There have been no extensive repairs made at the Island 
daring the year. 

Ten hundred and twenty-four persons who had been com- 
mitted for the first time for drunkenness, were pardoned after 
serving ten days each, and but 68 of that number were re- 

The number of inmates remaining at the House of Industry 
this day is 1,149. 

The number of truants has increased, the number remain- 
ing being 89, an increase of nearly 50 per cent. The same 
is true of the House of Reformation. The number remain- 
ing this day is 89, an increase of nearly 50 per cent, over 
last year at the same time. The income, especially in the 
Stone Department, has increased. 

Home for Paupebs. 

The male paupers were transferred from Rainsford to Long 
Island, and the female paupers from Long Island to Rains- 
ford, on November 7th. 

The expense incurred in preparing the buildings at Rains- 
ford, for the reception of the females, was considerable, 
principally for new plumbing, steam-heating apparatus, and 
for the renovation of the hospital building, as well as for 
new drains. This expenditure was paid from the regular 

Forty-seven (47) inmates were found at this Institution 
who had no legal settlement in Boston, and had been sup- 
ported by the City for various periods. They were trans- 
ferred to other places where they belonged, or, where no 


settlement was established, to the care of the State, thereby 
relieving the City from their farther support. 

The number of inmates remaining is 842: Men, 378; 
women, 464. 

Cochituate water was introduced at Long Island on August 
22, and although the expense to the Institution will be 
large, its convenience and safety will be enhanced. 

The transfer of male paupers to Long Island will furnish 
labor for such inmates as are able to work, and increase the 
product of the farm, which comprises nearly 200 acres. 

House of Cobrbction. 

At this Institution somewhat extensive repairs have * been 
made, including new chimneys, new roof, and overhauling 
the drains. 

An increase of income will be shown in the report of the 
year, although the remuneration for labor has been much ob- 
structed by recent legislation. 

The average number of inmates for the year is 545 com- 
pared with 533 for 1888. 


To this Institution, that one formerly known as ** Retreat 
for Insane " has been added. They are now under one 
Superintendent. The transfer of authority was made on 
August 31. 

Twenty-six patients, whose legal settlements were in other 
cities and towns, or who were State charges, many of whom 
had been supported by the City for years at one or the 
other of the above Institutions, have been discharged, and 


committed to State Hospitals after medical examination. 
Number remaining, 307. Of these 127 were at the ''Retreat.'* 

Mabcella-Street Home. 

A new water main was laid and a few other necessary 
repairs were made here. 

An examination of the histories of the inmates is now 
being made, with a view to make proper disposition of those 
who have no legal claim for support by the City. 

The number of inmates remaining this day is 384. 

Almshouse at Charleotowk. 

Few changes are to be noted at this Institution, such re- 
pairs only as were necessary for the comfort of the inmates 
having been made. 

Six (6) inmates without legal settlement in Boston were 
found, and sent to the State Almshouse. 

Steameb '' J. Putnam Bbadlee." 

The steamer is in good condition, and is performing daily 

Paufeb Expenses. 

The Board is paying the Commonwealth for the support 
of nearly 700 insane persons belonging to Boston who are 
at the various State Hospitals or boarded out in families. 


The expenditures for the Institutions, the Steamer, Paupers, 
and Office work, beginning with the February draft of 1889, 
and including the draft for January, 1890, are as follows: — 


House of Industry #162,099 89 

LunaUc Hospital 53,564 48 

Marcella-street Home 49,073 08 

Retreat for Insane 30,824 61 

Home for Paupers 70,974 77 

Almshouse, Charlestown 16,877 14 

House of Correction 97,661 67 

Pauper Expenses 158,889 64 

Steamer Expenses 20,519 90 

Office Expenses , 15,860 98 

$670,286 06 

Unexpendbd Balances. 

House of Industry $9,955 99 

Lunatic Hospital 18,808 60 

Marcella-street Home 18,144 49 

Retreat for Insane 10,850 71 

Home for Paupers 20,764 58 

Almskouse, Charlestown 8,857 14 

House of Correction 25,844 98 

Pauper Expenses 22,786 87 

Steamer Expenses 1,412 91 

Office Expenses 5,526 79 

Total $181,902 41 

There will be required additional appropriations, as follows : — 

For House of Industry $10,000 00 

For Pauper expenses 15,000 00 

$25,000 00 

The above amounts, with the transfers of unexpended balances 
from other Institutions under our charge, to the appropriation 
for the House of Industry, in the judgment of the Board will 
be sufBcient for the remainder of the present fiscal year. 

The Commonwealth presented a bill against the City for the 


care of insane persons, amounting to $24,717.59, which accumu- 
lated from May, 1884, to October, 1888 ; provision should be 
made for its payment at an early day. A request was made 
for the amount by our predecessors, but the City Council failed 
to make the appropriation therefor. 

The Board would recommend an amendment to Chapter 22, Acts 
of 1886, by which those now in the House of Reformation may 
also be removed from association with adult criminals, and pro* 
vided for, if deemed expedient, in a separate building, but in 
the same enclosure as the truants, to be cared for under the 
general supervision of one superintendent. 

A new Hospital is imperatively needed on Long or Rainsf ord 
Island. The number of cases requiring hospital treatment now 
number 150, and the present accommodations are not sufficient. 

The necessity of a new Lunatic Hospital has been made a 
matter of recommendation by our predecessors for more than 
twenty years. This Board is now preparing a reply to a re- 
quest of the City Couucil '^to give an opinion on the needs of 
a new Hospital," which will be forwarded without delay. 

The Board recommends that a sewer be built from the build- 
ings at the Retreat for the Insane, to connect with the main 

If the House of Correction is to remain in its present loca- 
tion, it is recommended that a new wing be built, and a 
separate building be erected to contain cells for noisy and 
refractory prisoners, as the present solitaires are poorly located, 
and insufficient in number and size. 

The number of persons employed in this Department is 293. 

Respectfully submitted. 

For the Board, 




Officb of the Superintekdekt, 

December 28, 1889. 
Hon. Thomas N. Hart, Mayor. 

Sir: — The year 1889 has been one of great activity in the 
Lamp Department. There have been located the past year 94 
electric lights, making a total of 798 now in use. 

A very large number of gas lamps has been discontinued in 
consequence of the location of the electric lights during the year. 
Some have been transferred to the rapidly growing wards of the 
city. Yet the total number of gas lamps is 9,874, against 
10,104 a year ago, or 230 less than a year ago. 

A very large number of oil lamps have been located in the 
suburban districts, and a large number of those previously exist- 
ing have been changed from oil to gas, so that the total number 
is now about the same as a year ago. 

That a very large amount of work has been done in the loca- 
tion of new lamps may be judged by the fact that the amount 
expended for underground work, such as laying pipe and setting 
posts, is 97,491.97, the largest since 1877. 

The expenditures of the Department for the calendar year 
have been $593,499.17, as against $548,714.53 in 1888. 

The appropriation for the fiscal year, which ends on 

the 30th of April next, is ... . $593,081 00 
Amount expended 418,735 40 

Balance unexpended $174,345 60 

The amount expended in 1889, from January to April 30, was 


$175,062.83. The balance of the appropriation will be sufficient 
to meet the anticipated expenditures for the remainder of the 
year, notwithstanding the largely increased number of electric: 
lights now existing. 

I would respectfully suggest, that if a statute law could be 
enacted, making a crime, with a suitable penalty attached, o£i 
the malicious breaking of the public lamps, it would have a good* 
effect in all Cities and Towns of the Commonwealth. 

An ordinance providing that no posts shall be erected in the- 
streets within 10 feet of any public lamp post, would prevent' 
many obstructions to the lighting of the streets. 

Ordinances substantially of this character are in- existence in 
New York. 

The number of persons employed in this Department at the 
present time is 161, viz. : — 

Superintendent 1 

Clerks 2 

Drivers 3 

Repairers 3 

Hostler 1 

Lamplighters 151 

Respectfully submitted, 

Superintendent of Lamps. 



Office of the Corporation Counsel, December 28, 1889. 
Hon. Thomas N. Hart, Mayor. 

Sir : — In reply to Circular No. 35, I have the honor to 
report that : — 

1. The actual work of the Law Department during the year 
1889 has been its usual and regular work, much increased, how- 
ever, in several directions, especially in matters and questions 
under the Ballot Act, and in matters connected with the Charles- 
river bridges ; and also in the work (by order of the City 
Council) of revising the Ordinances of the City. 

2. The actual expenses were $27,399.45. 

3. The unexpended balance, $7,700, is expected to be suffi- 
cient for the remainder of the financial year. 

4. We have no special recommendations to submit. 

5. The total number employed (including a messenger) is 


Respectfully submitted, 


Corporation Counsel. 


Public Libraut, December 28, 1889. 
To His Honor Thomas N. Hart, Mayor. 

Sir: — The Trustees of the Public Library of the City of 
Boston have the honor to acknowledge the receipt of Circular 
No. 35 from your office, dated the 23d of December, and in 
reply, to report as follows: 

There were added to the Library during the eleven months 


ending December iBt, 21,817 Tolames, making the whole number 
of Tolumes, exclusive of unbound books and pamphlets in the 
Library on that date, 526,727. 

There were loaned from the Library during the eleven months 
ending December 1st, 972,238 volumes, or 50,167 more than 
during the same period last year. During the same time there 
were loaned for use in the reading rooms 562,586 periodicals, an 
increase of 45,642 in eleven months. 

The number of books bound during the eleven months ending 
December 1st, was 26,234. The number of volumes catalogued 
during the same period was about 80,000. During eleven months 
15,203 persons have been registered and received cards entitling 
them to draw books from the Library for home use. The 
whole number of persona registered is 68,308. 

On the 11th of March a new delivery station was opened at 
Allston, so that there are now eight branch libraries and eight 
delivery stations. Three of the delivery stations have reading 
rooms attached to them. 

The Library force has not been increased during the year, and 
it consists at present of 158 persons, including the five Trustees 
who serve without compensation. 

On December 16 Bates Hall was opened in the evening for the 
first time in the history of the Library. The attendance has 
been satisfactory, and indicates that the opening of the Hall in 
the evening was a wise measure, which will prove a public 

The amount expended for the Library for twelve months, 
excluding the draft of January 1, 1889, and including that of 
January 1, 1890, was $149,527.96. The unexpended appropria- 
tion is $34,888. The work of the Library for the remainder 
of the fiscal year cannot be properly and efficiently performed 


with the present available appropriation. The Library has in- 
creased in size and use so rapidly that the sum which some years 
since would have been ample for all purposes, is now utterly 
inadequate. At the beginning of the financial year the Trustees 
•0cA)mitted to the City Government a careful and economical 
estimate of the sum of money needed for the year. Owing to 
the exigencies of the City finances the sum appropriated was 
120,000 less than this estimate, which time has shown was under, 
rather than above, the amount needed. The Trustees are there* 
fore obliged to ask for an additional appropriation of $25,000 
for current expenses, in order to enable them to carry on the 
work of the Library efficiently and properly during the remainder 
of the finapcial year. A considerable part of the increase re- 
quired over the estimate is due to the sum which, in light of 
late events, the Trustees consider of absolute necessity to expend 
in order to guard the priceless treasures of the Library against 
danger from fire. The other main items for which there is urgent 
need of an additional appropriation are, briefly, the purchase of 
books, lighting, binding, transportation, printing the Bulletin and 
catalogues, preparing maps, and providing conveniences for using 
^em properly, extra service to catalogue and locate the books 
received and bound during the year. 

The Trustees desire to call the attention of your Honor to the 
sale at auction, on the Sd of February next, in New York, of 
the most important collection of books relating to American 
history ever yet sold. This library was collected by the late 
Samuel L. M. Barlow and has a world-wide reputation. 

The basis of the collection was formed by the late Colonel 
Aspinwall, of Boston, who was consul at London from 1816 to 
1854, where he had unequalled opportunities for obtaining rare 
books relating to America. After Mr. Barlow became owner of 


Colonel Aspinwall's colleotlon some years since, he applied his 
ample income to its enlargement and completion, and the disper- 
sion of several old libraries in England afforded him facilities 
not enjoyed by Colonel Aspinwall. 

The catalogue contains 1,784 titles of books and manuscripts, 
a large number of which are not found in the Public Library, 
but which are highly necessary to enable it to maintain its rank 
among the great libraries of the world and to meet the just 
demands of the people of Boston, and to add to the attractions 
of the Library. Any account of the Barlow Library, save the 
most general, would be out of place here. It is perhaps sufficient 
to say that it covers the whole field of American history from 
Columbus to the present day, and could it be placed in the Public 
Library beside the Barton Collection of Shakspeariana, the 
Ticknor Collection of Spanish literature, the Quincy and Everett 
collections of Congressional Documents, and the Bowditch Collec- 
tion of Mathematics, it would not only add to its symmetry but 
to its use and prestige. 

An opportunity to purchase such books is not likely soon, if 
ever, to occur again. It would therefore be a breach of duty on 
the part of the Trustees if they did not lay the matter before 
your Honor, and respectfully advise and urge that suitable and 
special appropriation be made to enable them to secure such part 
of the Barlow Library as is necessary for the purposes before 

The New Librabt Building. 

Work on the new Library building, which was suspended on 
the 25th of December, 1888, was resumed on the 15th of March 
last, and since that time has proceeded satisfactorily. The walls 
have now reached the level of the Bates-Hall windows. Contracts 


have been made for substantially all the stone and brick work, 
which is to be completed by the 1st of January, 1891, when the 
Trustees hope that the building will be roofed in. 

The amount expended upon the new Library buQding during 
the past year (excluding the draft of January 1, 1889, and in- 
cluding that of January 1, 1890) was $311,839.24; the amount 
previously expended was $95,696.08 ; making a total expenditure 
to January 1, 1890, of $407,535.32. 


The amount appropriated by order approved May 12, 1888, was 
$368,854.89; and by order approved March 18, 1889, was 
$1,000,000; making a total appropriation of $1,368,854.89. 

Ck>ntracts are already awarded to the amount of $790,185.24; 
leaving an available balance of $171,134.33. 

The Teustkes of the Public Library 

OF THE Crrr of Boston, by 




Office of the Superintendent, Faneuil Hall Market, 

December 28, 1889. 
Hon. Thomas N. Hart, Mayor. 

Sir : — In reply to your communication of the 23d inst. 
I would respectfuUy report that the portion of the buildings 
used for Market purposes is in good repair. Many improve- 
ments, which have been made at the expense of the lessees, 
have been completed during the year. The rents are paid 
promptly. The regulations of the Market are cheerfully com- 
plied with, and its well-established reputation for honorable 
and fair dealing fully sustained. There should be at an 
early day some arrangements made for an improved system 
for the drainage of the Market, as that in use at the pres- 


ent time is not what it should be. The gas-pipes in the 
Market are in bad condition, having been in use for many 
years, and being badly corroded, owing to the dampness and 
large quantities of salt used about the building. The experi- 
ment of ^ lighting the passage-ways of the Market with incan- 
descent lights is now being tried, and gives general satis- 

The income from the Market Department for the fiscal 
year 1889-90 will be $85,400. The expenditures for this 
Department for the calendar year 1889 have been $9,626.87. 
The appropriation for the fiscal year 1889-90 is $9,750, 
which includes the amounts paid for salaries, gas, water, and 
incidental expenses. Of this sum there remains unexpended 
$2,734.11, which will be sufficient to meet the wants of the 
Department for the balance of the year. The pay of the 
police-officers of this Department ($3 per day) has always 
been regulated by that paid the regular police force, and as 
their labors are as arduous in every respect as those of the 
regular police, I would recommend that an increase be granted 
them for the ensuing year. 

There are now employed in this Department,-— 

One Superintendent, 

One Deputy Superintendent, 

One Weigher at City Scales, 

Three Department policemen, and 

One watchman for extra duty. 


Superintendent of the FaneuU HaU Market. 



Office of ths Crrr Messenger, Citt Haix, 

December 27, 1889. 

Hon. Thomas N. Habt, Mayor of the OUy of Bofion, 

Sir: — In reply to Circular 35, dated December 23,1 would 
respectfully submit answers to questions, as follows: — 

1st. The ordinary work done by this Department for the 
calendar year 1889 has been the general care and cleaning of 
City Hall; attendance at the meetings of both branches of the 
City Council and numerous committee meetings, several of 
which have held very late sessions; the care, custody, and 
delivery of all City documents, pamphlets, and minutes of the 
City Council, printed for the use of the Council, and also the 
care, custody, and delivery of the nineteen volumes of the 
Record Commissioners' Reports and reprints, and keeping a 
record of each book delivered. The total number of meetings 
of the Board of Aldermen for the present year is 58, total 
number of meetings of the Common Council 40, total number 
of committee meetings, up to December 28, inclusive, 1,175. 
The extraordinary work performed by this Department has been 
the caring for and displaying of the City flags on all public 
holidays, etc., and caring for ropes and stakes used on public 
holidays and other days by the military and other organizations. 
Two new flag-stafifs have been erected, and one repaired. 
Extra work has been performed by this Department in connec- 
tion with the reception of the City's guests, namely: The 
President of the United States, the International American 
Congress, the Mayors' Club, the officers of the United-States 
Squadron of Evolution, aud others. On the 17th of June, 


the Fourth of July, and the recent State and City elections, a 
large amount of extra work has been performed by this De- 

2d. The actual expense of this Department for the past 
year, including the January draft for the year 1890, has been 

8d. The unexpended appropriation for this Department, 
January 1, 1890, amounts to $6,218.77. 

4th. I would respectfully recommend that the dome and 
upper stories of City Hall be made fire-proof, for, if a fire 
should occur at any time in the dome of this building, it would 
be liable to do considerable damage before the same could be 
extinguished. Frequently, fires have occurred in City Hall, 
caused by electric-light wires coming in contact with other 
wires. Within the past few days I have caused all telephone 
wires running into City Hail, except those used by the Fire 
Department, to be supplied with a patent safety fuse, as a 
protection against fire. 

5th. The total number of persons employed in this Depart- 
ment is 19, all of whom receive salaries, and, in addition to 
this number, there are 2 Lieutenants of Police and 5 house 
watchmen, who, by ordinance, are placed in charge of this 
Department, to protect City Hall, and to preserve order in any 
part thereof. The two Lieutenants receive a sum of $200 each 
per annum from this Department, for attending the meetings 
of the Board of Aldermen and Common Council. 

Respectfully submitted, 


CUy Messenger. 



Inspector's Office, December 27, 1889. 
Hon. Thomas N. Hart, Mayor of Boston. 

Sir : — I have the honor to submit the following brief report 
of the work of the Department of Inspection of Milk and Vinegar 
for the year 1889. 

During the past twelve months nearlj twelve thousand samples 
of milk, butter, and vinegar have been collected and subjected 
to examination. In the obtaining of these samples all parts of 
the City have been constantly visited by the collectors employed 
by the Department. When analysis has shown the articles to be 
not of good standard quality, such action has been taken in each 
case as has seemed advisable to bring about improvement in 
the future. 

To this end 535 warnings have been issued, and 817 com- 
plaints have been entered in the courts. 

As a result of these complaints, between seven and eight 
thousand dollars have thus far been paid in fines, and at the 
same time a great improvement has been observed in the quality 
of milk and vinegar, particularly in certain districts where 
hitherto adulteration has been extensively practised. 

The number of licenses issued to dealers in milk and oleomar- 
garine since January 1 is 1,198, for which $599 have been 

The expenditures of the Department have amounted to 
89,478.20, and the unexpended balance of the appropriation, 
$2,055.82, will be sufficient for the proper continuance of the 
work to the end of the fiscal year. 

There are at present employed by the Department, in addition 
to the Inspector, a derk, a chemist, and two collectors. 


To increase the efficiency of the work, I would recommend 
that the Department be provided with a horse and wagon for 
the use of the collectors. As must be evident, the latter being 
on foot, are at a great disadvantage in collecting samples from 
wagons whose drivers may, and often do, whip up their horses 
to escape inspection. In certain outlying districts it is impos- 
sible to make early morning collections without a conveyance, 
and at present this is done with the aid of a herdic, the expense 
of which is not inconsiderable. 


Inspector of Milk and Vinegar. 


Commissioners' Office, 85 Milk Street, 

December 28, 1889. 
Hon, Thomas N. Hart, Mayor, 

Sir : — In reply to your request for information regarding 
the operations of the Department, for the past year, as 
called for by circular letter No. 35, for publication with the 
inaugural address, the Board has the honor to submit the fol- 
lowing : — 

The actual work done by the Department in the calendar 
year 1889 is as follows : — 

Wood Island Parkj East Boston. — The approaches from 
Neptune bridge on the Park grounds have been partially 
graded with material taken from the site of the proposed 
play-ground on the northerly slope of the park. The work 
is being done under a new laying out by the landscape 


architects, which will effect a saving in the construction of 
the park. 

Marine Park, — The pier-head, a contract for which was 
let early in the season, is nearly completed. Foar spans 
haye been added to the iron pier, and a contract has been 
made for the remaining span to be placed in position when 
the pier-head is finished. The Board has made a contract 
for 200,000 cubic yards of filling under which about 20,000 
cubic yards have been deposited. 

Charleahank. — The grading and planting has been finished, 
the Gymnasium completed and opened to the public, a build- 
ing for use in connection with the Gymnasium and for ad- 
ministration purposes erected. Gas lamps have been placed 
along the embankment wall, and one hundred park-settees 
arranged along the walks. The girls' Gymnasium ground is 
ready for the building and the apparatus, and the children's 
pl^y-gi^ound is nearly completed. 

The Parkway f Back Bay Fens. — Audubon road on the 
westerly side of the upper basin has been finished for a 
distance of 1,700 feet from Agassiz road, and the adjoining 
slopes and large island planted. On the easterly side the 
slopes have been completed and mostly planted from Agassiz 
bridge to the new Stony-Brook outlet, the walk graded and 
partly built, and, except for a short distance near the Stony- 
Brook outlet, the slopes around the southerly side of the basin 
to the location of the Fen bridge have been graded and 
loamed ready for planting. The walk on this side has also 
been graded. The channel has been dredged and the shores 
completed up to the proposed Fen bridge at the point where 
the Parkway is to turn towards Brookline avenue. Excavations 
for the foundations of the bridge have also been made. The 


curbstones and paving blocks for the Fenway trom Agassiz 
road to the new outlet of Stony Brook have been pur« 
chased, and are on the ground, and a large amount of road 
material has been prepared for use next year. The Sewer 
Department has also partly built the abutments and ^ers 
for the Stony-Brook bridge. The question occurs whether 
the Sewer Department is to build this brieve. The Board does 
not see how this work can be said to belong to the Park De- 
partment, inasmuch as Stony Brook was led into the Parkway 
at this point by the Sewer Department, and this necessitated 
the bridge, there being already another ohannd of Stony 
Brook into the Fens. 

Arnold Arboretum, — The driveway from the present drive 
to Walter street has been graded for about three-quarters 
of the distance, — about 2,000 feet, — including the building of 
one culvert. 

Franklin Park. — The Playstead Shelter and the grounds and 
walks about it were finished, and, together with the Play- 
stead, were opened to the public on the 12th of June with ap- 
propriate ceremonies. 

The Walnut-avenue entrances were also finished early in the 
season, and the grounds about them planted. A rustic foun- 
tain of field-stone, supplied with water from a neighboring 
spring, was erected near the Playstead road. 

The old Trail road entering the park from Seaver street, 
opposite Humboldt avenue, has been finished and the slopes 

The Valley Gate to the Country Park and about 3,500 feet 
of the park wall on the line of Glen lane have been com- 
pleted. Glen lane (for heavy traffic) has been graded for 
two-thirds of the distance across the Park, and about half 


the whole length of the road macadamized and furnished 
with edgestones and gutters. 

The Circuit drive has been completed and opened to travel 
from the Valley gate to Walnut avenue near Ellicott street 
— about one-half mile — the slopes graded and some of the 
adjacent walks built. This included Ellicott Arch which car- 
ries the drive and ride over the walk from Williams-street 
entrance to Ellicottdale. The ride has been partly subgraded 
along this part of the Circuit drive. 

The Circuit drive from Walnut avenue, near Ellicott street, 
has been subgraded to the road leading to the dairy and Scar- 
borough HUl, and the subgrading of this road is now in 

Ellicottdale has been cleared of stone, drained and mostly 

The upper part of the valley southerly from the Valley gate, 
including the old location of Williams street, has been cleared 
and graded, and the main line of the Park drainage has been 

There is but little more required to finish the surface of the 
Country Park, as it is designed to be left for use by the public, 
and the Board hopes that it can be finished next season, not 
including the circuit drive from Scarborough Hill around the 
southerly and easterly sides to Glen lane. 

A flock of 56 sheep has been obtained for the Country Park, 
and a temporary sheep-fold provided. 

The actual expenses of the Department for 1889 were: — 


Foe Park Construction, 

Franklin Park «229,242 66 

Back Bay Fens 98»397 08 

Marine Park 90,796 13 

Charlesbank 25,923 04 

Arnold Arboretom 9,029 iX 

Wood Island Park 7,569 98 

9460,958 30 

Fob Park Maintenance. 

Franklin Park 917,228 22 

Back Bay Fens 12,256 19 

Charlesbank 4,800 35 

Arnold Arboretom 3,661 64 

Marine Park 3,660 74 

Wood Island Park 3 30 

$41,110 44 

For Park Nnrsery 5,408 49 

For Department Expenses 6,140 33 

The unexpended balances of appropriations December 28, 
1889, are: — 

Balance of the 3d instalment of the Loan for Park Con- 

Btmction 940,898 83 

Balance of appropriation for maintenance, including rey- 

enne appropriated to maintenance 6,957 04 

Balance of Department appropriation 3,124 89 

Balance of Nursery appropriation 1,648 99 

These balances of the general appropriations the Board thinks 
are sufficient to continue the work of the Department to the 
end of the fiscal year, April 30, 1890, without further aid. 

To carry on the work of Park oonstruction the yearly instal- 


ment of the loan for 1890 will have to be drawn upon in 

The Board would recommend that the City Council be urged 
to pass the order for a loan of $600,000, outside the Debt 
limit, as authorized by the Legislature in 1887, for the pur- 
chase of additional land required tor parkways connecting 
Back-Bay Fens, Franklin and Marine Parks, especially in 
view of the fact that each year's delay enhances the price of 
the lands to be acquired, and so increases the cost; and of the 
fact that the extension of the Back-Bay Fens as planned can- 
not proceed unless additional land is first purchased. 

The Board would also suggest that an early construction of 
the bridge required at the new outlet of Stony Brook, by the 
Sewer Department, will enable the Board to finish its work in 
the vicinity now suspended ; and that the placing of edgestones 
around the areas reserved for planting on Commonwealth ave- 
nue, by the Paving Department, must precede the work of this 
Department in planting the areas which are now in its charge. 

The number of persons now employed in the Depart- 
ment, including all heads and Commissioners, is 535. 

Respectfully submitted, for the Board, 




Board of Police, 7 Pemberton Square, 

December 27, 1889. 
HoK. Thomas N. Hart, Mayor. 

Sir : — The number of persons arrested during the year ending 
November 80, to which date the statistics of the Police Depart- 


ment are made Dp, was 40,066, an iDcrease of 4,057 over the pre- 
ceding year. Of this nnmber, 31 per cent, were non-residents. 
The number of n^ales arrested was 34,283 ; of females, 5,783. 

The value of property reported stolen was $72,822.64, being 
$6,890.73 less than in 1888, and the amount recovered by th& 
police, that was stolen in and out of the city, was $122,3301.58,. 
being $37,973.82 more than in 1888. 

In the license year, beginning May 1, there were 780 pllaces 
licensed, not including druggists' and club licenses. This is 
1,010 less than in 1888. 

There were 144 officers appointed on the force, including 59 
reserve men ; 18 were dischaiged ; 5 resigned ; 6 retired on 
pension ; and 9 died. 

The work of introducing the police signal-system was com- 
pleted. The entire City is now equipped. Wagon-houses are 
now being built in Divisions 7 and 11, but as yet no provision 
has been made for the accommodation of patrol-wagons ia 
Divisions 12, 13, and 16. 

The expenses of the Department for the calendar year, includ- 
ing the draft for January 1, 1890, were $1,151,139.65. The 
balance of appropriation unexpended is $321,162.29. This will 
not be sufficient to meet the expenses for the remainder of the 
financial year, and the Board will require the full amount called 
for by the requisition for the present year. 

The number of persons employed in the Department is 906. 

Respectfully submitted, 






Office of the Overseers of the Poor, 

December 27, 1889. 
Hon. Thomas N. Hart, Mayor, 

Sir : — In reply to Circular No. 35 the Board of Overseers 
of the Poor reports as follows : — 
Nnmber of families aided — 


. 1,723 

July . 


February . 

. 1,743 




. 1,618 

September . 


April . 

. 1,083 



May . 


November . 

. 1,018 

June . 

. 1,017 

December . 

. 1,369 


A _ ^ • ^\.» 

^j_^ •• « J 

A% M 

In addition to furnishing out-door relief to the poor at 
their homes, and burial of the dead, the Board has charge 
of the Charit}' Building, the Temporary Home for women 
and children, and the Lodge for Wa3'farers for men. 

The Charity Building is occupied by the Overseers of the 
Poor, the State Aid Paymaster, the City Physician, and vari- 
ous private charitable organizations, it having been built to 
bring together the most important charitable agencies, and 
thus enable them to work together for the common good. 

At the Temporary Home 3,722 women and children have 
lodged, and 15,515 meals have been furnished to others. 

The Lodge for Wayfarers has lodged 30,704 men, and 
furnished 73,140 meals. The beneficiaries have worked for 
the relief furnished. Over 1,800 cords of wood have been 
prepared and sold during the year. 

The Board has a grocery department connected with the 


Charity Bailding, from which most of the supplies for the 
poor are delivered. 

Medical attendance and medicine are famished in the out- 
lying districts of the city not covered by the Boston Dis- 

The expenses of the Department for the year 1889 amount 
to $109,410.83. 

The unexpended appropriation is 945,812.21. The Board 
believes this amount to be sufficient for the calls to be made 
upon it for the balance of tbe fiscal year. 

The Board consists of 12 members who serve without pay. 
It employs a Secretary, Treasurer, 4 Clerks, 7 Visitors, 2 
Agents, 5 Physicians, 2 Storekeepers, Eagineer, and Janitor. 
At the Temporary Home, a Matron, Assistant Matron, Jani- 
tor, and Cook are employed. 

At the Lodge for Wayfarers, a Superintendent, Cashier, 
Steward, and such temporary employees as may be needed 
from time to time, averaging 19. 

The Trust Funds in charge of the Board are carefully 
invested, and the income expended in accordance with the 
directions of the donors. 

In behalf of the Board of Overseers of the Poor, 




Office of the Superintendent of Printing, 

CriT Hall, December 26, 1889. 
Hon. Thomas N. Hart, Mayor, 

Sir: — The actual work done by this Department in the 
calendar year 1889 consisted of the printing of various blanks 


and books in use in the different Depailments, and the regu- 
lar docaments for the use of the City Coancil; and the pur- 
chase of stock consumed in the production of the same. 
In addition, the following volumes and maps were issued : — 

1,500 copies Crispus Attucks Memorial, 

5,720 «' Sheridan Memorial, 

1,500 '' Old State House Memorial, 

2,500 '' Bunker Hill Tablets Memorial, 

1,000 *' Statutes Affecting City of Boston, 

1,500 '^ Digest of Building Laws, 

19 volumes Record Commissioners' Reports (500 copies each), 

2 editions of Colonial Laws, 

1 ,000 Maps of Town of Dorchester, 

500 Large Maps of Boston, and 

2,000 Ward Precinct Map Books. 

The actual expenses of the Department for the same period 
(excluding draft of January 1, 1889, and including draft of 
January 1, 1890) were $64,805.19. 

The unexpended balance for the fiscal year ending April 80, 

1890, of the Printing Appropriation proper, is . • . $6,883 09 

The estimated income for the balance of year is . • . 8,000 00 

Becord Commissioners* item, unexpended balance, is . . 5,176 16 

Total 1^15,059 25 

It is expected that the foregoing sum will be barely enough 
to carry the work of the Department through to the end of 
the year; but as the Superintendent has no control over the 
expenditure of the appropriation, and merely conforms to all 
legal orders of the City Council in expending it, the City 
Council will have to provide for any deficiency which may 


The Superintendent believes that greater efficiency of the 
Department would be secured if the employment of an ad- 
ditional clerk were permitted, and the appropriation for Print- 
ing and Stationery of the several Departments, not specially 
exempt by law, consolidated in the Annual Estimates under the 
general heading of Printing and Stationery; the control of the 
expenditure of the whole to be given to the Superintendent of 
the Printing Department. By this means better terms for the 
purchase' of Stationery supplies might be made, and a more 
satisfactory supervision obtained. 

The total ntimber of persons employed in the Department is 
three, as follows: The Superintendent, a clerk, and the in- 
dexer of the Minutes of the City Council. 




Officb or Ikspectob, December 26, 1889. 
Hon. Thomas N. ELlbt, Mayor of Boston. 

Sib : — In response to Circular 35 I report the amount and 
the kind of articles of food that have been condemned and 
destroyed by this Department during the past year. 
Whole number of seizures, 982. 

3,379 pounds of Veal. (Immature.) 

870 " Veal. (Tainted.) 

9,052 " Poultry. 

163 " Pork. 

1,854 " Fish. 


86,740 pounds of Dates. 
624 " Mutton. 

1,158 barrels of Potatoes. 












Beans. (String, Wax, etc.) 







































of Beans. (String, Wax, etc.) 









Summer Squash. 















of Strawberries- 



Berries. (Blue and Black.) 



of Oysters. 

2,585 dozen 



59 baskets of Peas. 
120 jars of Lobster. 
120 cans of Com. 
24 ** Tomatoes. 
72 '* Sardines. 
16 *' Grapes. 
48 Carlew. 
The actual expense of the Department for the period men- 
tioned has been two thousand two hundred -^jj dollars 
(82,200.30). Of the sum appropriated for the Department, 
there remain unexpended eight hundred fifty-nine -^fP^ dollars 
($859.76), which I believe is sufficient for the needs of the 
Department for the remainder of the fiscal year. 

Much difficulty has been experienced in carrying out the pro- 
visions of Section 2 of Chapter 58, Public Statutes, because of 
the doubtful meaning of said section, and I would suggest that 
it be so amended as to place the expense of removing articles 
seized as unfit for food under this section upon the owner or 
person in whose custody they may be found at the time of 
In this Department there is but one person employed. 

Respectfully submitted, 

Iw^pector of Provisiona. 


Crrr Hall, December 27, 1889. 
Hon. Thomas N. Hart, Mayor. 

Sib: — The Record Commissioners have to report that their 
expenses for the year 1889 amount to 84,862^^0^, leaving an 


anexpended balance of $1,852.16, which is sufficient for the 
remainder of the fiscal year. 

The Department consists of two Commissioners and four 

The work done has been the copying of church records 
and the preparation for the press of the Town records. The 
twentieth volume of their reports has been completed, and 
two volumes (viz., Dorchester Births, Marriages, and Deaths, 
and the Boston Tax List of 1798) are now in press. A 
special volume in regard to the Bunker Hill Tablets was also 
prepared and printed by the order of the City Council. 

The public interest in and demand for the volumes of 
reports continues unabated. 

Respectfully submitted, 





Office of the Citt Registrar, December 26, 1889. 

To the Mayor. 

Sir: — I beg leave to state that the entire expenses of this 
Department are for salaries, determined by the City ordinance, 
for record books and stationery, and for the annual collection 
of births, made in pursuance of State laws. The appropriation 
granted for these purposes during the present year by the 
City Council was $14,160, of which there remain unexpended 
$7,004.50. This amount will be sufficient to meet the wants of 
this Department until the end of the present fiscal year. 


The number of persons employed in this office is eight — three 
men and five female clerks. 

Yoor obedient servant, 


City Registrar. 

[From the Superintendent] 

The School Committee has given much attention to needed 
improvements in the ventilation of school-houses. Although 
much remains to be done, it is believed that all the worst cases 
of defective ventilation have been cured. 

A further provision for the safety of the children in school- 
houses was made by placing the janitors under the rules of the 
civil service. 

The tenure of office by which most of the teachers in the City 
now hold their places, has been changed from one that terminated 
annually to one that continues during the pleasure of the School 
Committee. This measure undoubtedly places the teachers in a 
more agreeable and dignified position than they held under the old 

Manual training has made satisfactory progress in the elemen- 
tary grades during the year; but a most important step yet 
remains to be taken — the establishment of a Mechanic Arts High 
School. An elaborate plan for such a school has been prepared, 
and the specifications for the erection and furnishing of a proper 
building are ready. The City Government will be asked to make 
the necessary appropriations for the land, the building, and the 
running expenses. 


[From the Auditing Clerk.] 

The expenses of the School Committee from January 1, 
1889, to January 1, 1890, amount to $1,643,976.61. 

The unexpended balance remaining January 1, 1890, is 

It is expected that the unexpended balance will prove suf- 
ficient to carry on the work of this Department for the 
balance of the financial year without further aid. 

The number of persons employed to carry on the work, 
instructors (day and evening), janitors, ofiicers, and other em- 
ployees, December 1, 1889, was 1,783. This number does 
not include the members of the School Committee, twenty-four 
in number, who serve without compensation. 


Office of the Superintendent, 

December 28, 1889. 
To His Honor the Mayor. 

Sir: — Apart from the work of maintaining the old sewers, 
which, sometimes, necessitated the making of extensive repairs, 
there have been built by this Department, during the calen- 
dar year 1889, about 5| miles of new sewers and 183 new 
catch basins; and about 825 old catch basins have been 
repaured. About 2 miles of sewers have been built by private 
parties at their own expense and subsequently were released 
to the City. 

The construction of the Stony Brook Improvement has been 

The works at the Main Drainage pumping station and at 


Moon Island are in good order. The cost of repairs on the 
works will increase from year to year, owing to the wearing 
out and necessary renewal of important parts of the system. 

The attention of the City Council has already been called 
to the necessity of proiriding means for a permanent conduit 
from Squantum to Moon Island; also, for pumping out the 
tunnel; and I would again call attention to the danger of 

During the eleven months ending November 30, 1889, the 
average amount of sewage pumped daily has been 51,256,898 
gallons — showing an increase over tbat pumped last year of 
616,866 gallons daily. The largest number of gallons pumped 
on any one day was on January 7, 1889 — 138,615,771 gal- 
lons; and the smallest, on November 17, 1889 — 32,217,372 

Sewer assessments to the amount of $69,249.39 have been 
levied under the old law, and to the amount of $32,976.65 
under the new law relating to sewer assessments. 

This new law, or rather Special Act, relating to sewer 
assessments in the City of Boston, which was approved on 
June 7, 1889, has entailed a large amount of extra work 
on the Department, necessitating the opening of a new set of 
accounts and requiring that each and every individual assessed 
shall be notified of the amount of his assessment and the 
requirements of the law relating thereto. 

Under this law, the amount to be collected as an assess- 
ment on account of the construction of a sewer depends 
upon the cost of all the sewers built in the City during the 
five years immediately preceding, and bears no relation to 
the cost of that particular sewer. This fact has caused 
widespread dissatisfaction among property owners, as, in a 


majoril}'' of cases, tbe amoant assessed is largely in excess of 
the actaal cost of the sewer hi questioa. The provision of 
the law, requiring that interest shall be charged from the 
date of completion of the sewer, thus commencing before the 
parties interested have been notified of the fact that an as- 
sessment has been levied against them, has also eaused a great 
deal of complaint which appears to be well founded, and 
there is a general demand for a repeal or modification of the 

The amounts expended under the different appropriations 
during the year are as> follows: — 

Sewer Department (which includes the cost of nadntalning 
the Main Drainage Works, the care of Stony Brook and 

the Cleaning of Catch Basin?) $372,816 85 

Stony Brook ImproYement 105,671 51 

Sewer, Hudson Street 9,462 92 

Sewers, South Core District ....... 7,312 76 

Sewer, Meridian Street • • » . ^ . . . 6,688 10 

Sewer, Magazine Street ........ 3,500 00 

Sewer, Mount Vernon Street 1,000 00 

Sewers, Ashmont 54 85 

Total $506,506 99 

Of Special Loans, I have unexpended balances amounting^ 
in the aggregate, to $57,969.56. 

The unexpended balance of my Sewer Appropriation, 
$66,420.26, is suflQcient to carry the Department successfully 
to the end of the fiscal 3*ear. 

There are employed in this Department to-day 865 men. 

Attention is respectfully called to the need of much latter 
appropriations for building sewers. Many of the sewers are 
leaky and in bad condition. They should, at once, be re- 


placed by water-tight sewers, not only as a sanitary measure 
but to afford relief to the intercepting sewers; for, until all 
sewers and drains connecting with the main drainage system 
are made water-tight, the full benefit of that system cannot 

It is, also, desirable, and will soon become a necessitj^ to 
abandon the combined system of drainage in the outlying popu- 
lous districts, and to divert the surface water, or portions of it, 
into the natural water courses, or into tide water, thereby 
affording relief to the abutters now frequently flooded in times 
of storm. This will avoid the necessity of pumping surface 
water at the Pumping Station. To accomplish this purpose, 
all natural water courses should be presei-ved. 

The Act relating to Sewer Assessments is believed to be 
irksome and unjust, imposing a larger proportion of the 
expense upon the abutting estates than they should be called 
upon to pay, and believed to be largely in excess of the rate 
designed by its projectors. 

As sewers are necessary in all populous districts, for the 
health and prosperity of the entire community, it would appear 
worthy of consideration, whether the system of direct assess- 
ment for sewers should not be abandoned and the entire cost 
paid by current taxes ; or, else, the rate made uniform — 
say — one cent ($0.01) per square foot of land drained. 

Respectfully submitted, 


Superintendent of Seivera. 




Office of Superintendbnt of Streets, 

City Hall, December 28, 1889. 
Hon. Thomas N. Hart, Mayor. 
Sir : — I have the honor to report : 

Ist. '^The actual work done in the calendar year 1889" may 
be briefly sammarized as follows: — 

Granite blocks laid 
New edgestone set 


29,667 sq. yds. 

82,773 iin. feet. 

51,390 " " 

43,911 sq. yds. 
1,547 " " 

11,590 Iin. feet. 

19,428 sq. yds. 

1,369 " " 

1,188 ** " 

$18,502 89 

$23,464 15 

$157,806 42 

Edgestone reset . 
Brick sidewalk laid 
Concrete sidewalk laid 
Flagging (cross-walks) laid 
Round stone gutters 
Asphalt pavement, new 
Asphalt pavement, resurfaced 
Grade damages, executions of Court 
"Watering streets by contract 
Expended for general repairs 

2d. '^ The actual expenses of the Department for the same 
period, excluding the draft of January 1, 1889, but including 
that of January, 1890": — 

Balance on hand January 1, 1889 
Loan January 2, 1889 
Transferred from Commonwealth ave- 
nue • ••••• 

Transferred from Boylston street 
Loan February 16, 1889 . 
Appropriation for 1889 
Loan December 24, 1889 . 

$8,265 11 
66,300 00 

11,000 00 

5,000 00 

57,889 30 

648,229 00 

50,000 00 

$846,683 41 



EapendUures : — 
Labor • • • • • 
Street material . • . . 
Teaming, hired .... 
Teaming hired for watering streets 
Watering streets by contract 


Balance on hand January 1, 1890 

Special appropriations: — 

On hand January 1, 1889 . 

Appropriation January 2, 1889 . 

May 1, 1889 
September 25, 1889 

Transferred September 19, 1889 

Appropriated December 23, 1889 



Expended to date 

Balance on hand 

$323,048 81 
147,169 44 
70,689 25 
20,113 00 
23,464 15 
176,064 97 
86,134 29 

$846,683 41 

$17,960 15 
117,000 00 
161,725 00 
207,000 00 
2,000 00 
14,000 00 

$519,685 15 
298,922 96 

$220,762 19 Jan. 1, 1890 

3d. ''The unexpended appropriation and my ability to con- 
tifiue the work of the Department to the end of the fiscal 
year, April 30, 1890, with or without further aid" : — 

Balance of regular appropriation January 1, 1890 . $86,134 29 
" " Special ** «* " . 220,762 19 

Total $306,896 48 

The Department is at present on full time, and to continue 
it so until April 30, 1890, will require for — 


Labor $160,000 00 

Office salaries 5,005 00 

Hay, grain, etc 2,500 00 

Street material 10,000 00 

Water 6,237 00 

Incidentals, grade damages, etc 10,000 00 

Total $198,742 00 

My ability to continue the work of the Department until the 
end of the fiscal year without fbrther aid will depend entirely 
upon the character of the winter and the amount of snow to 
be handled. I find by the Superintendent's report for the year 
1887 that the amount expended for snow was $116,000, while 
for the same purpose in 1888 only $6,500 was required. Should 
the present winter be as favorable as the last the remainder 
of the general and special appropriations will be sufficient for 
all purposes. 

4th. ^^ Any recommendations for the greater efficiency of this 
Department, especially such as may require action on the part 
of the Mayor, the City Council, or the Commonwealth." I 
desire again to call attention to the constantly increasing 
street mileage of the City, and the necessity for sufficient appro- 
priations to do the work of the Department. The annual 
appropriations for some 3'ears have been barely sufficient to 
meet the requirements of constant repairs, cleaning, purchase 
of new material, steam road-rollers, stone-crushers, engines, 
and the various expenses incidental to the Department. Tet 
I am expected with this appropriation to attend to the hundreds 
of orders passed by the Board of Aldermen for new work on 
edgestones, brick sidewalks, and the construction of new streets. 



This is an absolute impossibility, and much of this work remains 
iindone, to the great annoyance of the petitioners. 

By reference to the statement of actual work done during 
the year it will be seen tliat six miles of new edgestone have 
been laid. One-half the expense of this work is assessed upon 
the abutters, and returns to the sinking-fund. 

It has been suggested that measures be taken to secure an 
appropriation of $500,000 annually for new work; this, if 
applied to new edgestone and new paving, as well as to the 
construction of new streets, would go far towards enabling me 
to bring the Department to the point of efficiency at which it 
should be maintained. 

The matter of street openings continues to be a constant 
source of annoyance to the Department and to the citizens at 
large. So long as the Board of Aldermen grants to various 
corporations the right to occupy the streets, the Superintendent 
has no option but to grant the permits to open. Where for- 
merly there were only the sewer, water, and gas pipes to 
contend with, we now have in addition the telephone, electric 
lighting, heating, and freezing pipes, with their numberless con- 
nections with the buildings. 

During the year 9,750 permits, varying in length from 10 
feet to 500 feet, have been granted, and every precaution pos- 
sible has been taken to see that the disturbed pavement has 
been restored to its former condition. We have a good sys- 
tem of inspection, and defects are also reported by the police. 
Settlement invariably takes place after the 0[)eniug has been 
filled, and the companies are frequently required to pave a 
second and third time. With these requests they liave always 
shown a readiness to comply whenever the responsibility has 
been well established. I do not think it advisable, so long as 


this merciless CDtting-up ooniioiies, to lay any expensive pave- 
ment upon our streets. A granite pavement on a hydraulic 
cement base, at $4 a square yard, or any form of asphalt 
pavement seems to me to be unwise until some greater restric- 
tions are put upon the issuing of permits, or a subway or some 
comprehensive system is provided by which the underground 
service can be cared for without disturbing the street surfaces. 

The first cost ot such a way would doubtless be something 
appalling, yet it is a question whether the amount now actually 
spent in carrying on the present cumbersome system would not 
amply provide for the interest on the larger expenditures. 

5th. The total number of persons employed in this Depart- 
ment at the present time is seven hundred and sixty-three. 

Very respectfully, 


Superintendent of Stress. 


Cmr Survetor's Office^ 
CiTT Hall, December 26, 1889. 
Hon. Thomas N. Hart, Mayor. 

Sir: — The work of the Department has been of the same 
general character as that of previous years ; but as the City is 
growing from year to year, there is a gradual increase in the 
.amount of work performed. 

Plans and profiles of a large number of streets in the outlying 
districts have been made, and releases prepared for the abutters 
to sign, preparatory to the laying out of these streets by the 
Street Commissioners. 


More buildings having been erected in Boston during the past 
year than in 1888, and more work in giving lines and grades of 
streets for building purposes has been required of this Depart- 
ment than during the previous year. 

Flans and profiles for the relocation of Mt. Vernon and Temple 
streets, and the lowering of the grades of those streets in the 
vicinity of the State-House extension, have recently been com- 

A large plan of the burnt district, by the fire of Thanksgiving 
day, has been compiled, showing the estates within the limits 
of the district burnt over, and also showing other estates in the 
vicinity. Plans have also been made, for the Street Commis- 
sioners, showing the proposed widening of Chauncy street, 
between Bedford street and Rowe place, the proposed widening 
of Bedford street between Chauncy and Kingston streets, and the 
proposed widening of Kingston street at the north-easterly comer 
of Bedford street — all within the limits of the burnt district. 

Plans of the new precincts, 286 in number, have been pre- 

. pared for the use of the Registrars of Voters, who have caused 

them to be heliotyped. Another set of precinct plans has been 

prepared and heliotyped, and bound up in book-form, showing 

wards and precincts, for the use of the City Council. 

The expenses of the Department from January 1, 1889, to 
January 1, 1890, amount to $34,825.71. 

The amount of the appropriation unexpended is $8,879.97, 
which will probably be sufficient for the remainder of the finan- 
cial year. 

The total number of persons employed at the present time 

is 35. 

Verj' respectfully, 


City Surveyor. 




CiTT Treasurer's Office, January 1, 1890. 
Hon. Thomas N. Hart, Mayor. 

Sir : — The undersigned herewith presents a statement, in com- 
pliance with your request of December 28, 1889, of the receipts 
and payments of the City of Boston and County of Suffolk for 
the year 1889, beginning January 1, 1889, ending December 31 , 
1889, showing the balance of money remaining in the Treasury 
December 31, 1889, and where deposited, and of the other 
matters referred to in your conmnunication. 

Yours most respectfully, 


City Treasurer. 


For the Caiendar Tear 1889, beginning January 1, 1889, ending 

December 31, 1889 : — 

Balance on hand January 1, 1889 

$8,264 «» 60 


From City Collector: . 

On CitT Account 

$16,408,951 68 

On County Account ....... 

Temporary Loans :^ 

AnUoIpation of Tazet, 1889, 2H 

$2,000,000 00 

CltyLoana: — 

General Loan of January 8, 1889, 4)( . • . 

769,000 00 

General Loan of February 16, 1889, 4^ . . 

416,000 00 

New Library Building, Dartmouth it., ZH 

600,000 00 

' Improredf Seweraire. 3M 

600,000 00 

Public Park Construction, 4)( 

600,000 00 

ICiMellaneoua purposes, S^jt 

600,000 00 

6,186,000 00 

Carried /orwardt 

$90,898,616 02 

$8,204,006 69 



Brought forward, 
finiVolk Oonn^ Loads : — 

Oenenl Loan of February 16, 1880, 4$ . • 
CottUfeOite Water Loam : — 

Sztenaion of Maina, etc, 

Kxtenalon of ICaina, eie.. mi 

Additional Supply of Water, S^ 

Shopa, Allwny atreet, O. W. Works, 8|^ . 

Board of Oommlsdonera of Sinking Funds >- 

For payment of debt . . • 

For eoflt of redemption of sterling debt • . 

Premium on CSoddtnate Water Loans negoti- 

$900,000 00 

180,000 00 

146,000 00 

60,000 00 

Interest on Back Deposits 

Fay Roll TaLinn, from paymasters* settle- 
mente w?lh Ouhier, parties unpaid • . . 

Premium ol Oity Loans negotiated 

$1,167,828 90 
1,648 20 

Tax titles, received from owners to seeure 
estatea sold for taxes 

Interest on OoeUtuate Water Loans negoti- 


On aocoant of the City of Boston : -~ 

On Mayor's Drafto : Oeneral Drafts .... 

PayKollDrafte . . . 
OarrUd foraardt 

•$6,607,666 84 
t6,600,067 66 

$18,016,028 40 

$90,808,6U 02 

64,000 00 

$8,264,606 60 

686,000 00 

1,160,871 48 

84,016 60 
60,176 00 

22,060 02 
121,247 40 

900 44 

44 44 

22,004,681 88 
$36,160,286 80 

•Amount of General Drafte through City Auditor's 

Office from January 1, 1880 $6,610,674 78 

Add: Amount of General Drafte outstand- 
ing December 81, 1888 • 

2,846 18 

Leas: Amount enjoined and restrained from pay- 
ment by Supreme Judicial Court 

Amount tranaforredto **01d Claims," April 
80, 1880 

Amount not paid December 81, 1880 

$6,618,010 01 

$800 60 

1.117 10 
13,446 47 

6,464 07 
$6,607,666 84 

X Amount of Pay Roll Drafte through City Auditor's Office from 

January 1, 1880 $6,600,601 22 

Add : Amount of Pay Roll Drafte outstanding Decem- 
ber 81, 1880 22,826 66 

Less : Amount not paid December 31, 1880 

$6,582,427 87 
23,870 81 

$6,600,067 66 



Bntmifht forwairdt 

Special Dr»fU . 

Commonwealth of McuoaehutgUa: — 

State Tax *< 1889" 

NaUonal Bank Tax «* 1880*' 

National Bank Tax "1888" 

Corporation Tax "1888" 

Armory Loan AaMflsment 

Liquor Lioenw Bevenae ** 1880 '* 
Liquor Llcenae BeTenne ** 1888 '* . • 

Board of OommUtiwMrt of Sinking 
litndt : — 

Berenue, payable under authority of 
Ordinanoe on Finance 

Premium on Loans negotiated 

Pay-BoH Tailing!, payments by Cashier 
to parties not paid by paymasters • . . 

• • • • 

$18,016,828 40 
6,640,880 00 

PoUoe Charitable Fund 

City Hospital Trust Funds 

City Debt due prior to May 1, 1880 . . . 
Taxes, eto., held under protest, refunded 

Taxes, etc., refunded 

Mount Hope Cemetery 

Cochituate Water^Bates refunded . . . . 
Public Library Trust Funds 

Sewer Assessmenta held under protest, 
refunded •• 

Evergreen Cemetery Trust Fund i 

Besidne Tax Sales, eto 

Oatried /ortoard, 

t$18,666,454 80 


040,400 20 

1,167 67 

4,862 80 

81,408 » 

221,668 76 

277 00 

$06,761 00 
140,660 80 

1,627,879 26 

236,420 80 

28,164 81 
12,600 00 
0,600 00 
6,000 00 
6,608 28 
8,606 01 
2,400 00 
1,000 40 
1,400 00 

386 40 
800 00 
219 86 

$80,498,368 80 

t Includes, City Debt paid $1,167,828 80 

Coat of Bedemption of Sterling Debt 1,648 20 

Temporary Loans 2,000,000 00 

t Includes Interest paid as follows : — 

On City Debt $1,681,880 82 

On Cochttuate Water Debt 764,728 27 

On Mystic Water Debt 41,667 60 

$8460,Sn 40 

$2,318,871 W 



JBraught forward, 
OM ClAtcnfl. MaTor*s Dnftt ....... 

$20,408,868 80 
142 08 
104 88 
10 46 

Mvitio Water Ratnt rttfimded 


#20.408,025 80 

TmytDMiatB <» aeeovni of ib» County of Suf- 

Allowed by Auditor of Cocmty of Suffolk, 

MaTor*! Special Drute • . . • 

#666,870 86 

602,614 68 

882 60 

66 00 

18 40 

CoQntT 4i>w to CroniplalnaBt 

Oounty ftnee, award to wife for neglect 
to raoport bv hoeband *•.««••• 

Judgment for eosU of suit agatntt rare- 
tiee on bail bond In caee Commonwealth 

fli«. Tjiav M. O-nvA luiil Gtavrmt RlnvAr . 

Bounty for de«tnictlon of Seala . . t . . 

1,280,050 Tt 

#21J6S,686 07 

Balanee. JaBuarr 1. 1880 

#8»2OI,606 6O 

Becelpts on accoimt of the City of Boeton, 

$22,686,067 86 
868,668 44 

on aoconnt of the Coonty of Suffolk, 

22,001,681 80 

#20,408,626 SO 
1,260,060 77 

Faymenta on aeconnt of the City of BoatonJ 
on aooount of the (Joonty of Suffolk, 

#26,160,286 80 
21,768,686 07 

Balaaoe. December 81. 1880 

#4,400,661 82 

* Amount of Comity RegistratioDe tbrovgh 
County Andltor's offloe from January 1, 
1880 . 

: Amonnta transferred to "Old 
Claims," April 80, 1880 • . 
Amomits not paid December 81. 

Add : Amounts outstanding Deoembor 

#066,687 20 
817 40 

#667,404 60 

#8 26 
616 60 


#666,870 86 

t Inelades Coonty Debt paid, #17»000.00. f Inohtdes Ifttereat paid <m Coonty Debt, #88,407 J»0. 



Balance. Deoember 81, 1889, at per preceding stotament, de- 

ledT • 

poilted in tile following-named 1>anks : — 

Atlantio NaUonal Bank 

Atlaa Nattonal Bank 

Blaokitone Nationai Bank 

Boston National Bank 

Broadway National Bank 

Banker HIU NaUonai Bank 

Central National Bank 

Sverett National Bank 

Faneull Nattonal Bank 

Fint Ward National Bank 

Foarth National Bank 

Freeman's Nattonal Bank 

Lincoln National Bank 

Mannfaetarera* National Bank . . . 

Market Nattonal Bank 

ICaeiacbveette Nattonal Bank .... 

Kayeilck Nattonal Bank 

ICechanAes' Nattonal Bank 

KetropoUtan Nattonal Bank .... 

Monument National Bank 

Motwt Vernon National Bank . . • . 
Nattonal Bank of the Oommonwealth 
Nattonal Bank of North Ameilca . . 

Nattonal City Bank 

Nattonal Bzcliange Bank 

Nattonal Hide and Leather Bank . . 

Nattonal Boeklaad Bank 

Nattonal Becnrity Bank 

Nattonal Webeter Bank 

North Nattonal Bank 

Old Boston Nattonal Bank ..... 

People's Nattonal Bank ....... 

Shawmat Nattonal Bank 

CkurrUd /brward. 

$75,115 07 
75,188 78 
75,120 48 
75.144 85 

50.087 50 
76,147 04 
75,181 80 

50.005 80 

75.147 02 
60,100 02 
75,135 82 
75,181 50 

75.180 60 
75,143 84 

75.148 82 
75,110 04 

75.181 48 

50.006 00 

50.088 80 
50,008 73 
50,006 88 
75,181 52 
75,181 60 
75^35 02 
'75,181 51 

75,110 17 
75,148 14 
75,160 01 
75,148 84 
75,148 85 
75,148 84 
75.148 75 
75,118 01 

$2,804,100 86 



Brought foru>ard. 
Third National Bank . 
Tremont Katfonal Bank 

Globe National Bank 

Howard National Bank 

National Bank of Redemption 

National Bank of tile Repnblio . 

National Berere Bank 

National Beeority Bank, Fay*roll Tailings aeooant . 

Gaah depoalted In Bank* 

Gaah and caah vonehera In ofice, Inclading paymente made 
on January, 1880, Draft • 

$2,804,1«> 66 
76,148 86 
76,116 67 

$2,464^480 18 
899,632 45 
889,878 81 
851,002 04 
663,148 88 
462,619 76 
6,607 87 

$4,816,766 04 
83,886 78 

$4,400,651 -82 

Expenses of the Dbpabtuent, Etc. 

The actual expenses of the Department during the calendar 
year 1889 were $37,030.75. 

The unexpended appropriation for the present financial 
year 1889-90 is, $10,086.60, which will be sufficient to meet the 
wants of the Department to the end of the fiscal year. 

The total number of persons employed in this Department, 
including the City Treasurer, is fifteen. 



Board or Rbgistbabs of Voters, 12 Beacon Street, 

December 27, 1889. 
HoK. Thomas N. EUrt, Mayor. 

Sir: — 1. We have the honor to say that the work of the De- 
partment during the calendar year 1889 has been the prepara- 
tion of the Jury List, the rearranging and reprinting of all 
names on the voting-lists in conformity with the new precinct 
lines as established by the order of March 20, 1889, together 
with the preparation and publication of the voting-lists for the 
annual State and municipal elections. 

The provisions of the new Massachusetts Ballot law have 
largely increased the labor and expense of the Department, in- 
volving the examination of nomination papers of candidates for 
State and municipal offices, in which 12,500 names were actually 
verified, out of more than 20,000 names submitted ; and the at- 
tendance at hearings on contested nominations before the Board 
of Final Appeal of which this Board forms a part. 

2. The actual expenses of the Department from January 1 
to December 81, 1889, amount to $46,706.16. 

8. The unexpended balance of our appropriation amounts to 
$5,488.53, and it will require the further sum of $8,000 to 
meet the expenses of the Department for the balance of the 
financial year, as advised in our communication to your Honor 
dated November 8, 1889. 

4. We may ask for some amendments to the new Ballot 
Law with a view to perfecting some of its sections, which we now 
find quite difficult of practical operation. 

5. The total number of persons now employed in the De- 
partment is nine. 


We woald respectfully suggest that the number of voting- 
precincts be reduced from two hundred and eighty-six to two 
hundred. This calculation is based upon the average ratio of 
increase in the number of voters, which, in the near Ibture, will 
reach 80,000, thus giving an average of 400 to each precinct. 
From our own observations and the testimony of others who have 
given the subject considerable thought, wo are of the opinion 
that four hundred or even five hundred persons can conveniently 
vote under the new system within the time allowed by law be- 
tween the opening and closing of the polls on election day. If 
a reduction of precincts should be made in accordance with the 
above suggestion, it would, in our Judgment, result in a saving to 
the City of at least $65,000 between now and 1895, at which time 
the ward lines must be changed, which change will necessitate the 
rearrangement of many of the precincts, but will not necessarily 
add to the number. 

The Board of Registrars of Voters, 




Office of the Boston Water Board. 

CiTT Hall, December 28, 1889. 
Hon. Thomas N. Hart, Mayor. 

Sm: — In answer to your Circular of December 23 the Bos- 
ton Water Board has the honor to report as follows : — 

In the Eastern Division, during the year 1889, the amount 
of work done has been larger than usual. The distributing 
mains have been extended 22.3 miles, and 1.7 miles of the old 


maiuB have been relaid with pipes of larger size. The total 
length of mains now connected with the works is 479 miles. 
2,054 services have been connected with the works, a number 
larger than daring any year since 1872. The supply for fire 
service has been improved by the addition of 168 hydrants, 
and also by the substitution of 118 hydrants of improved pat« 
tern and large size for the same number of small hydrants of 
the old pattern. 456 new meters have been added and 112 
discontinued, making a net increase of 344. Hie pipe line, 
laid through the City of Qnincy from Neponset to Long Island, 
for the supply of the Public Institutions oo the island, was 
completed and placed in service during the latter part of Au- 
gust of the current year. The 80-inch and 16- inch connecting 
mains for the supply of Charlestown from the Cochituate 
works will be in readiness for use within a few days, and a 
water tank for the use of the supplementary high service for 
East Boston has been erected on Breed's Island. 

A new 20-inch main for the improvement of the high service 
supply in the City prc^r has been laid from the reservoir at 
Parker Hill to Boston Common, a distance of 15,650 feet. 
This work is complete with the exception of the connection over 
the Boston & Albany Railroad at Huntington avenue, which 
will be made within two weeks. Plans are under way for the 
removal of the machine shops and oflBces of the Eastern Divi- 
sion from the present location at 221 Federal street to the yard 
of the Department on Albany street, near Concord street. A 
new brick stable is now nearly completed at this yard, and a 
contract has been awarded for a building to contain the ma- 
chine shop and the offices. 
The Waste Detection Department has made during the year 


examinatioDS of 37,000 premises, and 8,800 reports of defec- 
tive fixtures have been made. 

In the Western Division surveys and borings for the much- 
needed new water basin, Dam No. 5 so called, were begun 
immediately after the passage and approval of the necessary 
loan order by the City Council this autumn, and the work of 
construction will be began as early in the spring as the weather 
wQl permit. Surveys are also being made for the acquisition 
by eminent domain at an early date of Whitehall Pond and 
other lands and water rights necessary for the development and 
protection of the supply. 

A contract was made and work begun on the new outlet 
dam at Lake Cochituate, which should be completed by the end 
of another season, and the lining of a portion of the Bea- 
con-street tunnel, which had threatened to cave in, is steadily 
progressing. At the Chestnut-Hill Pumpiug Station an elec- 
tric-light plant has been put in and is in operation, and a 
small biological laboratory has been erected and supplied 
with the necessary apparatus under the direction of a com- 
petent assistant for a systematic study of the animal and 
vegetable organisms which may be found in the water sup- 
ply. It is hoped that this innovation will be of much 
service in helping the Department ta aixive at more accu- 
rate knowledge regarding the character of the supply. 

In accordance with the direction of the Board the Engi- 
neer has begun a series of filtration experiments with a view 
to formulating at an early day a plan for the filtration of 
the entire supply, data concerning which we hope to present 
by the end of another year. 

We are glad to report that the Framingham sewerage sys- 
tem is in operation, and that connections by the parties who 

128 ' APPENDIX. 

drain into the Boston water supply are being made with 
reasonable despatch, which could develop into celerity with 
advantage to the City of Boston. The plan for the disposal 
of the sewage of Marlboro' has been revised, and a hearing 
on the same is shortly to be held before the State Board of 

The whole important question of pollution will be treated 
at length by the Board in its annual report. We beg to 
state that the matter is being carefully studied and systema- 
tized at the present time with a determination to putting an 
end to such abuses as exist in the Cochituate and Sudbury 
system. Several injunctions have been obtained against par- 
ties polluting the supply. 

In the Mystic Division, in addition to the regular work, 
Important repairs have been made on the dam at Mj-stic 
Lake, and an independent condenser and air pumps for 
engines 1 and 2 are now being put in. Considerable labor 
has been expended in cleaning the various ponds of the sys- 
tem, in the hope of saving the supply from further det«- 
rioration. Concerning the future of the Mystic the Board 
has not at this moment arrived at a definite conclusion. 

The daily average consumption of water has been 83 
gallons per head on the Cochituate and Sudbury supply, and 
70.5 gallons per head on the Mystic supply, a decrease of 8.5 
per cent, in the case of the former, and 5.1 per cent, in the 
latter, as compared with the previous year. 

Acting under advice of the City Engineer we have informed 
the City Council that a new engine is needed at the Chestnut- 
Hill Pumping Station to supplement those now in use, and the 
passage of a loan order to build the same is very desirable. 

The total number of the employees of the entire Department 


at this date, being our winter force, is 417, subdivided as fol- 
lows : Eastern Division 229 ; Western Division 81 ; Mystic 
Division 73 ; Water Board office 8 ; Special Agents 3 ; Engi- 
neering force (temporary) 23. 

Respectfully submitted, 

The Boston Wateb Boasd, 



CocHiTUATE Water-Works. 

MaiTitenance Account* 

Statement of Expenditures from January 1, 1889, to January 1, 2890. 

Boston Water Board, Salaries, Trayelling EzpenseB, Printing, 

Stationery, etc $16,235 78 

Water Registrar's Department, Salaries, Trarelling Expenses, 

Printing, Stationery, etc 41,213 18 

Eastern Diyision, Salaries, Trayelling Expenses, Printing, 

Stationery, etc 17,208 11 

Western Diyision, Salaries, Trayelling Expenses, Printing, Sta- 
tionery, etc 10,977 95 

Inspection and Waste Diyision . . ... 7,485 48 

Meter Diyision 6,487 86 

Federal-Street Yard 9,916 46 

Albany-Street Yard 7,653 25 

Lake Cochitnate 8,807 76 

Cochitnate Aqueduct . ^ 2,091 68 

Sudbury Aqueduct 19,808 60 

Sudbury Basins 8,289 03 

Chestnut Hill Driyeway 1,779 64 

Special Agents (8), Salaries, Trayelling Expenses, etc. . . 8,802 51 

Telephones 932 75 

Cktrried forward, $157,489 44 


Brought forward^ $167,489 44 

Maverick Wharf, Salary of Agent, Rent, Coal, etc. . . 2,119 02 

Main Pipe, relaying 17,744 27 

Main Pipe, repairing 7,149 47 

Hydrants, repairing 18,029 00 

Stopcocks, repairing 2,417 49 

Hydrant and Stopcock Boxes 4,835 18 

Tools and repairing 9,960 71 

Streets, repairing 10,392 79 

Seryice Pipe, repairing 12,553 91 

Fountains 3,486 56 

Stables 10,489 23 

High Seryice, Chestnut Hill 19,265 70 

High Service, East Boston 2,140 77 

High Service, West Roxbury 3,159 58 

Chestnut Hill Reservoir 25,177 09 

Parker Hill Reservoir 1,370 15 

East and South Boston Reservoirs 742 20 

Fisher Hill Reservoir 871 91 

Brookline Reservoir 972 93 

Meters, setting and repairing 4,673 85 

Waste Detection 16,597 87 

Analyses of Waters 845 00 

Damages 2,004 92 

Taxes 1,931 50 

Collection of Water Rates 2,500 00 

Inspection of Water Sources 1,646 92 

Improvement of Sudbury and Cochituate Supply . • 4,505 61 

New Stable, Albany-Street Yard 290 13 

Merchandise sold from Stock Ill 13 

Old Material, charged off from Stock Account . . . 1,012 55 

•345,986 88 


Appropriation, Cochitoate Water- Works, for year ending 

April 80, 1890 $407,660 00 

Expended, inclnding January draft 1890, to date (Decem- 
ber 27, 1889,) 9 months 240,584 64 

Balance unexpended 1^167,075 46 

ExTEKsioN or Mains, bto. 

Expenditures from January 2, 1889, to January I, 1890. 

Main Pipe, Uying 9231,895 68 

Service Pipe, laying 42,817 01 

Sidewalk Stopcocks 22,879 88 

Extension to Long Island 86,073 75 

Connection with Charlestown 11,127 44 

Miscellaneous 2,926 04 

New Main, East Boston (Balance) 144 46 

$347,863 76 

Balance appropriation, extension of mains, etc., 

on May 1, 1889 $8,009 14 

Additional appropriation 1889 .... 350,000 00 

$358,009 14 

Expended, including January draft 1890, to date (Decem- 
ber 27, 1889,) 9 months 265,113 79 

Balance unexpended $92,895 35 

High Sbbyiob. 

Balance appropriation May 1, 1889 $12,436 87 

Expended, including January draft 1890, to date (Decem- 
ber 27, 1889,) 9 months 12,411 28 

Balance imexpended $25 09 

Introduction of Meters and Inspection. 
Coehiiuate Water- Works. 

Balance appropriation May 1, 1889 $19,465 22 

Expended inclu(Ung January draft 1890, to date (Decem- 
ber 27, 1889,) 9 months 12,685 97 

Balance unexpended $6,779 25 


iMPBOTEMBirr OF Laks Coghttuatb. 

Balance of appropriation May 1, 1889 $14,815 99 

Expended, including January draft 1890, to date (Decem- 
ber 27, 1889,) 9 months 3,608 68 

Balance unexpended $11,807 86 

Additional Supply of Watbb, 
Balance appropriations May 1, 1889 . . $20,194 89 
Additional appropriation (order Noyember 13, 

1889) 1,046,000 00 

$1,066,194 89 

Expended, inclnding January draft 1890, to date (Decem- 
ber 27, 1889,) 9 months 8,602 61 

Balance unexpended 81,061,692 28 

Mtstic Watee-Works. 
Maintenance Account. 
Statement of ^cpendiiures from January 1, 1889 y to January 1, 1890. 
Boston Water Board, TraTelling Ezpenaes, Salaries, Printing, 

etc $6,428 40 

Water Begistrar's Department, Travelling Expenses, Salaries, 

Printing, etc 9,722 47 

Superintendent's Department, Travelling Expenses, Salaries, 

Printing, etc 6,471 81 

Oflf and On Water 2,841 90 

Mfun Pipe, relaying 11,437 84 

Main Pipe, repairing 986 04 

Service Pipe, laying 1,849 97 

Service Pipe, repairing 3,060 01 

Hydrants, repairing 700 28 

Gates, repairing 962 87 

Streets, repairing 922 96 

Lake 6,203 74 

Carried forwoA'dy $60,077 78 


Brought forward^ $60,077 78 

Condnit 949 41 

Engine-House 2,892 82 

Stables 4,823 68 

Eesenroir 2,887 78 

Pamplng Service 24,624 88 

Repair Shop 2,943 88 

Fonntains 863 21 

Tools and Repairing 739 64 

Mystic Sewer 21,741 66 

Waste Detection Serrice 2,039 75 

Inspection and Waste Division 1,869 29 

Meter Division 2,101 30 

Meters, setting and repairing 984 63 

Special Agents 144 44 

Protection of Water Sources 1,344 76 

Taxes 68 80 

Analyses of Water 8J 00 

Merchandise sold 29 84 

Main Pipe, laying 1,31048 

Portion of cost of New Main to East Boston ... 14 24 

Connection with Cochitoate High Service .... 1,606 21 

Connection with Cochituate Low Service .... 2,692 63 

$126,660 21 

Appropriation, Mystic Water- Works, for year ending April 30, 

1890 $174,366 00 

Expended, including January draft 1890, to date (December 

27, 1889,) 9 months 86,366 17 

Balance unexpended $88,998 83 

Iktroduction of Mbtebs and Insfectiok. 

Mystic Water- Works. 

Balance appropriation May 1, 1889 $886 b^ 

Expended to date (December 27, 1889) 143 75 

Balance unexpended $742 81 



Office of the Water Registrar, 

CiTT Hall, December 28, 1889. 
Hon. Thos. N. Hart, Mayor, 

Sir: — In response to Circular 85 I herewith submit the fol- 
lowing concise statement of work performed, together with the 
expenses of this Department, for the calendar year 1889, also 
the unexpended appropriation for the year ending April 30, 

CocHnuATB Works. 

Total receipts from January 1, 1889, to date . $1,380,680 27 
Total receipts for corresponding time in 1888 . 1,347,118 79 

Increase $33,561 48 

Mystic Works. 

Total receipts from January 1, 1889, to date . $319,101 19 
Total receipts for corresponding time in 1888 . 304,272 26 

Increase $14,828 93 

The actual expenses of this Department from January 1, 
1889, to date have been 950,930.27. The unexpended appro- 
priation for the year ending April 30, 1890, is $23,563.89, 
and is ample to continue the work of the Department for the 

A comparative statement of work performed in the service 
branch of the Department for the years 1888 and 1889 : — 















New service-pipes laid 

Cases service-pipes repaired 

Gases off and on water for nonpayment 

Cases off and on water for repairs 

First time applications 

The total number of persons now employed in this Depart- 
ment is 43, including 14 laborers. 

Respectfully submitted, 


Water Registrar. 


Sealer's Office, December 28, 1889. 
To His Honor the Mayor. 


Sir : — In compliance with Circular 35 I respectfully sub- 
mit the following statement of the operations of this De- 
partment from January 1, 1889, to December 26, 1889. 

Number of scales tested 


" *' weights tested . 

. 32,984 

** " dry measures tested . 


*' ** wet measures tested . 


'* " yard-sticks tested 

. 1,262 

" *' charcoal baskets tested 


*' " grain tubs tested 


" '* coal baskets tested . 


The expenses of this Department for the current calendar 
year (excluding the draft of January 1, 1889) will be 


The unexpended appropriation on January 1, 1890, will be 
nearly sufficient to continue the work of the Department to 
the end of the fiscal year, April 80, 1890. On account of 
expenditures, which were not called for in the estimates, a 
small appropriation may be necessary to carry the Depart- 
ment to April 30, 1890. 

I find that an important part of the duty of this Depart- 
ment has not been properly attended to. I would recommend 
that a Deputy Sealer be appointed for the special purpose 
of testing and sealing charcoal and coal baskets, and ped- 
lers' measures of all kinds, which would be a benefit to the 
poor people of this City. 

The number of persons employed in this Department is six. 

Respectfully submitted, 


Sealer of Weights and Measures. 






. * 

4Ua^ k-ijf. /^..^-s-.i'-^ 








JANUARY I, 1 89 1. 

Rockwell and Churchill, City Printers. 

189 I. 









JANUARY I, 1 89 1. 


risfrr- •«  


>1 M03T0W1A. S; 


Rockwell and Churchill, City Printers. 

I 89 I. 


To THE Honorable the City Council. 

Gentlemen : — In taking leave of the City 
Government by means of a Farewell Message, — 
foUoMdng the precedent of the greatest Mayor we 
ever had, the elder Quincy, — it seems right to 
dismiss personal motive, and to submit, for the 
consideration of the City Government and the 
citizens, such conclusions as an experience of eight 
years in the service of the City, two of them 
in the Mayoralty, may justify. 


The duty of governing our great cities satis- 
factorily and right, it seems to me, is but in 
part a question of law, and very largely a mat- 
ter of good citizenship properly exercised. "When 
highminded citizens choose the right persons to 
make up their City Government and School 
Committee, it is of secondary importance what 
particular laws and ordinances may be in force. 
The public will be properly served. With ill- 
informed or ill-disposed persons in officet even 


rigid and perfect laws will not be a sufficient 
protection of the public interest. 

The highest vote ever reached in our City elec- 
tions, in 1888, was 63,548. With a population of 
450,000, we ought to have nearly 90,000 male 
voters. The abstainers, it will be found, are mostly 
citizens who favor good government; for those 
that look to special benefits from the City are 
now on the voting-lists. It is important, in my 
opinion, to bring out a full vote at every elec- 
tion, to naturalise our residents as fast as pos- 
sible, and to teach the duties of citizenship where- 
ever possible, notably in our schools. We want 
good citizens. Good citizens alone are good 


We shall have the best possible government 
when all our citizens having the constitutional 
qualifications vote as nearly right as they can, and 
when our laws are brought as near perfection as 
reason and experience dictate. The constitution of 
a great American city should be substantially like 
that of the United States. In Boston we have 
taken two long steps in that direction. Our charter 
of 1822 drew a sharp line between the judiciary 
and all other government duties, and nobody has 
ever thought of returning to the confusion that 


marked our Town Government, In the Act of 1885 
(ch. 266) we have separated our City Council 
from the Executive, Time has justified this div- 
ision of power. But more remains to be done. 

I am of opinion that our Common Council 
should have concurrent power with the Board of 
Aldermen, and that a City Council of two branches 
should be retained, as should the system of Alder- 
manic Districts. State and national Senators are 
elected by districts and States; there are no 
Senators at large. Neither should there be Aldei:- 
men at large. And as long as our Board of 
Aldermen has the prerogative of confirming or 
rejecting nearly three thousand executive appoint- 
ments, — a power which should remain where it 
is, — the Common Council might have the sole 
right of originating finance bills. The members 
of the Common Council and the School Commit- 
tee should receive compensation for their services, 
and perquisites should be abolished. At present 
the poor cannot well afibrd to serve in the Com- 
mon Council or the School Committee. Yet the 
City has need of their services, and the City Gov- 
ernment belongs to all alike. Let us beware of 
making public offices the natural property of the 
rich. In a government of the people and for the 
people, the voice of the poor should not be un- 



I renew my recommendation for the consoUda- 
lion of certain Executive Departments for the 
benefit of the public and the public service. The 
number of separate Departments directly controlled 
by the Mayor of the City is thirty-nine, with 
ninety-two separate heads, not including more 
than a hundred sub-heads or assistants subject to 
the Mayor's confirmation, and excluding, also, more 
than twenty-five hundred Executive appointments, 
made annually subject to confirmation in the Board 
of Aldermen. If the Mayor wishes to make his 
appointments from actual knowledge, sufficient 
time will not be left for administrative work and 
for the necessary inspection of the thirty-nine 
separate Departments under his control, not to 
mention the half-dozen independent Depart- 
ments and special boards subject only to his 
general supervision. If the Mayor cannot readily 
keep familiar with the Departments, how can the 
plain citizen who comes to City Hall to transact 
business ? The President of the United States 
has eight Cabinet officers, the Mayor of Boston 
has ninety-two. 

We need a Board of Public Works forthwith, 
and other consolidations in time. There is no 
valid reason why the five Ferry Commissioners, 



established by Ordinance, should not be replaced 
by one Superintendfent, to be appointed by the 
Mayor subject to confirmation in the Board of 
Aldermen. Mt. Hope Cemetery should be placed 
under similar control. I think one Record Com- 
missioner sufScient. The Fire Department, the 
Law Department, the Park' Department, the Public 
Institutions, and the entire Water department 
should have one well-paid head each, three-headed 
commissions tending to divide responsibility, and 
to give a less energetic and harmonious service than 
the public requires. The office of Fire Marshal, 
established by the Commonwealth, should be abol- 
ished, and its duties transferred to the Fire 
Department. In the Records, Fire, and Law De- 
partments the simplification can be established by 
Ordinance. Constables should be appointed by the 
Board of Police. All weighers and measurers 
should be attached to the Department .of Weights 
and Measures. 

TERMS OP orncB. 

Heads of Departments should be appointed 
during good behavior, and all subordinates, save 
in a few cases, should come under the civil- 
service regulations of the Commonwealth, partly 
to abolish favoritism, that curse of government, 
partly to save time usually wasted when places 


in the public service are filled upon the request 
of interested persons. Officers appointed by the 
Mayor and confirmed by the Board of Aldermen, 
unless in charge of a Department established by 
Ordinance, should be appointed for one year only. 
At present Constables, Weighers of Coal, and other 
nunpr officers serve until removed, or until others are 
appointed in their respective places. 

I think our present system of annually electing 
the entire City Government little less than bar- 
barous. There is no sound reason why Mayors 
should not be elected for terms of two or three years, 
and why the members of the City Council should 
not be chosen for like terms, one-half or one-third to 
be voted for annually. In that way the City Coun- 
cil would become a perpetual body, and the annual 
elections would no longer give so imfortunate a 
shock to the public service and the interests of the 
City. Annual elections as now held are neither 
instructive nor useful. Longer terms of elective 
officers are conservative and will place upon voters 
a greater duty. 


In view of the great undertakings begun years 
ago, very little new work has been attempted 
during the past two years. Of the great works 
not yet completed, the parks and the new Public- 


Library building require still further appropria- 
tions. These enormous enterprises, to which the 
new County Court-House should be added, are 
carried on under special authority conferred by 
the State, the City having very little to do beyond 
paying the bills and accepting the outcome. The 
Harvard Bridge may be added, as it was built 
under orders from the Commonwealth. Completed 
some time since, it is not yet open to travel, 
through no fault of the City of Boston. The 
works referred to have cost, so far, $10,782,644.15 
in actual disbursements; and when they are com- 
pleted, hundreds of thousands of dollars will be 
required annually for maintenance. 

I shall not find fault with these vast under- 
takings. They are worthy of a rich and proud 
city. But it might be proper to plan more care- 
fully before millions are sunk in a new building or 
other public work; and the sooner we charge a 
good part of the cost into our taxes, the better 
it will be. The idea that the future should pay 
for improvements it will inherit, is not altogether 
sound. The future will have its own duties and 
new enterprises. The smaller the debt we be- 
queath to posterity, the more we shall be hon- 
ored and called prudent. A debt is a burden. 
A heavy debt is a calamity. 



The present City Hall should be extended, with- 
out unreasonable delay, to Coui*t Street. The ad- 
dition should be plain, very substantial, and as 
nearly jBireproof as skill can make it. The oc- ! 


cupation of the new Court-House has begun. The 
old Court-House should be vacated as rapidly j 

as possible, and its rebuilding, for City-Hall 
purposes, should begin at once, partly to put an 
end, as soon as possible, to the rents we now 
pay in accommodating City and County officers 
(at present, $38,032.06 a year), partly to bring 
all City officers together in one central building. 
I am confident that the proper place for the Fire 
Commissioners is in City Hall, and not in the 
headquarters building contemplated by a hasty 
appropriation of $165,000 made in the conster- 
nation after the great fires of 1889. The Fire 
Commissioners are not appointed to put out 
fires, or to command engine companies, but to 
manage the property and the affairs of the De- 
partment. They need a business office only, and 
not a show place that is likely to do more harm 
than good. The Department Chief, being the 
officer in command at fires, has a centrally- 
located office in Mason Street, which answers all 
legitimate purposes. 



The City has been specially liberal, during the 
past two years, to our public schools. Two large 
school-houses have been completed and dedicated; 
four large school-houses have been authorised and 
partly contracted for; and the great Roxbury High- 
School building approaches completion. The allow- 
ance for current expenses, mostly for the salaries 
of teachers, has been generous, and the relations 
between the School Committee and City Hall have 
been exceedingly friendly. It seems wise to build 
plain school-houses as requirements arise, and to 
devote increasing attention to the lower grade of 
schools. We shall deserve the thanks of our 
fellow-citizens and posterity when we give the 
children in our City a plain English education 
coupled with as much manual and industrial 
training as may be possible. The future voter 
and wage-worker will need his senses, plain 
English, and skilled hands much more than the 
rudiments of professional learning. 


The Water Works of the City are in the best con- 
dition ever reported. The water supply is pure and 
abundant, and the rates to consumers were reduced 
7 per cent, a year ago, and 10 per cent, a few days 


ago. For the next ten years the system may be ex- 
pected to meet the wants of the community. The 
addition of Whitehall Pond to the system, the im- 
provement of the Cedar-Swamp district, and the 
expected completion of Basin Five, place the Water- 
Supply Department in a strong position. The work 
of the Department toward assuring the purity of the 
supply is entitled to further encouragement, and the 
acts of the Commonwealth in that direction are 
highly appreciated. 


The lighting of the City is excellent. In two 
years the number of electric lights has been in- 
creased from 704 to 1125, and their cost materially 
reduced. The number of gas lights has been 
lessened from 10,104 to 9281, the number of oil 
lamps has been increased from 2994 to 3056. The 
Department has been well managed. 


The City needs authority for laying out and 
establishing the grade of streets throughout its 
territory. For obvious reasons the Board of 
Street Commissioners, whose duties have been 
discharged with equal fidelity and usefulness, 
should be clothed with authority for establishing 
lines beyond which no building could be erected. 


This will obviate the costly experience the City- 
has had in the Church-Street district, and the 
indiscriminate erection of buildings in new streets 
to suit the preference of owners alone. 

Kneeland Street, from Harrison Avenue to 
Albany Street, and Pleasant Street, from Park 
Square to Washington Street should be widened, 
to prevent blockades near the southern railroad 
stations, and to relieve the South-Boston travel. 
To relieve Washington and Treraont Streets as 
the great thoroughfares between the shopping- 
district of the City and the northern railroad 
stations, I suggest that Staniford and Temple 
Streets be widened, and that easy communication 
for street cars and teams be established between 
these thoroughfares and Park Street. This im- 
provement, fairly invited by the addition to the 
State House, would divert a part of the traffic 
now passing through Adams and Scollay Squares, 
beside opening a new section of the City for 
first-class business purposes. 


Much expensive re-paving is needed throughout 
the section south of Causeway Street and north 
of Beach Street. Boylston Street should be 
paved with granite blocks from Church Street 
to West Chester Park; Chester Park from Har- 


vard Bridge to Boston street, Dorchester; and 
Dorchester Avenue to Lower Mills. For our resi- 
dence streets a new pavement will have to be 
adopted. Macadamising suffices for parkways and 
suburban or lightly- travelled streets; for sections 
like the South End, the Back Bay, Charlestown, 
and any well-travelled City street, it is insufficient 
and unsatisfactory, being muddy in wet weather, 
dusty in dry seasons, and very costly to maintain 
at that. The demands of the people for better 
pavements are imperative. Perhaps it may be best 
to resort to rock asphalt, the imitations of which, 
containing coal tar, have proved unequal to the re- 
quirements of a city like Boston. The subject is 
important enough to be entrusted to a commission 
of paid experts, with instructions to consult the 
experience of other communities. The National 
Government has promised to submit special con- 
sular reports upon this topic. Meanwhile our 
Street Department has been conducted during the 
past two years with great efficiency and with xm- 
failing fidelity to the City and the citizens. The 
censure heaped upon the Dapartment and its hon- 
orable Superintendent should have been directed 
asrainst our financial resources. The entire force 
of the Department has been employed without 



Our sewers are not satisfactory. Many of them 
are antiquated, and should be rebuilt systemati- 
cally rather than piecemeal. The Improved 
Sewerage System has given some relief, and the 
Metropolitan system, both north and south of 
Charles river, promises more. But the smaller 
sewers are not what they should be, least of all 
in the older sections of the Citv. During the 


past five years the City has not expended half 
the sums really needed for sewers, and some day 
the subject may force itself unpleasantly upon 
public attention. 

For the first time in many years the mortality 
rate of the City is reported at less than twenty- 
three to each thousand inhabitants. This wel- 
come gain for the year 1890 cannot be 
maintained, unless the City expends millions for 
sewers, and takes every advantage of the Met- 
ropolitan Sewerage system now under construction. 
It will save wealth and sorrow to reduce the 
annual death rate below two per cent. 


The curt notice of the War Department, in 1888, 
that by this day the Charles-river bridges should be 
altered, was met in a spirit of fairness, and has been 


indefinitely extended, the Corporation Counsel ren- 
dering services of eminent value. The Law De- 
partment, of which he is the chief, has rendered 
acceptable assistance in replacing a government of 
committees, traditions, and law by a government 
rather of law. This transition, not yet complete, is 
bequeathed to the fostering care of our successors. 
Boston needs a government, not of party or leaders, 
but of plain law. 


The finances of the City, though carefully ad- 
ministered, are not satisfactory. Our tax laws 
are made by the State, leaving little latitude to 
the City. The present Government has asked for 
the establishment of occupation fees, with special 
reference to corporations occupying our streets. 
Should this principle prevail, it may lead to 
revenues equitable in themselves and beneficial 
to the Treasury of the City. The funded debt 
of the City has risen from $48,576,569.29 on 
December 31, 1888, to $55,440,361.06 on De- 
cember 31, 1890. This enormous increase of 
$6,863,791.77 in two years is due in part to per- 
manent improvements begun under a previous 
administration, but in part also to borrowing 
money for current expenses. The magnitude of 
the debt may well give our taxpayers pause, 


the demands for interest and sinknag-fund pur- 
poses being both onerous and imperative. I regret 
to add that the older part of the debt bears 
interest at more than four per cent, a year, and 
cannot be refunded, save at the pleasure of the 
bondholders. The City would gain, should all 
municipal bonds be exempt from taxation within 
the Commonwealth. 

The net debt of the City, being the funded 
debt less the sums actually in the sinking-fund, 
has grown from $26,850,901.99 on December 31, 
1888, to $31,053,496.98 on December 31, 1890, 
an increase of $4,202,594.99 under an adminis- 
tration that has not thought it right to begin 
costly improvements, having been confined to the 
inglorious duty of wrestling with inherited ex- 
penditures and with resources rigidly limited by 
the double authority of the State and public 
opinion. The next City Government, it is quite 
clear, will have to borrow more money, some of 
it for current expenses that ought to be met 
from current taxes. 

This condition of things is not creditable to 
a community of business men. Yet the law lim- 
iting our taxes for current expenses to nine 
dollars on a thousand of the assessed valuation 
still has its champions. In sober truth, the com- 
munity for itself, and the State for us, must 


choose between higher taxes and a higher debt. 
Unless the spirit of our people suffers a decline, 
our expenses will not diminish. Our streets and 
sewers have suffered more than is right and the 
community is willing to bear. To meet the ex- 
penses now demanded by the public, we must 
choose between augmenting our taxes or our debts. 
Our taxes can be raised with safety, though the 
government that levies a tax of fifteen or sixteen 
dollars per thousand may suffer in popularity. 
To issue bonds for current and petty expenses is 
perilous in the case of poor communities; in the 
case of a rich city like ours it is both near- 
sighted and immoral. . For six years past we 
have enjoyed low taxes, and at the same time 
condemned the future to pay in part for what 
we have consumed. 

The cash in the City Treasury at the close 
of business on December 31, 1888, was $3,264,- 
605.59; on December 31, 1890, |5,939,227.36. 
The year 1888 ended with a legal borrowing 
capacity of |22,028; the year 1890 with a legal 
borrowing capacity of $1,137,159. Today the City 
can borrow $1,800,000. Accordingly we dp not 
leave our successors without ample resources for 
all immediate wants. We leave them also a 
government unsullied by our hands. 



Gentlemen of the City Council : — The Gov- 
ernment of this year and its immediate predecessor 
have been above suspicion. The work of the two 
years has been done without ostentation and 
without marked shortcomings. The City has 
been almost free from calamities. I thank the 
Departments for their fidelity. In thanking you 
for the good . you have done, I speak for the 
City we love and for the office of which I now 
take leave. 








JANUARY $, 1891. 


Rockwell and Churchill, City Printers. 

189 I. 

'7  -  










JANUARY J, 1891.J 



I 89 I. 


In Board of Ai.derm£n, 

January 5, 1891. 

Ordered^ That His Honor the Mayor be requested to 
furnish the City Council with a copy of his Inaugural 
Address, for publication. 

Passed. Sent down for concurrence. January 5, came 
up concurred. 

A true copy. 

Attest : 


AsaistarU City Clerk. 


Gentlemen of the City Council: — 

Entering upon the discharge of my duties as 
Mayor of Boston without previous service in the 
city government, I shall at this time, with a single 
exception, refrain from discussing in detail the 
works or needs of the several departments, as it 
is proper that personal familiarity with their man- 
agement should precede criticism. The excep- 
tion will relate to the ordinary building operations 
of the city: namely, the construction and repair 
of streets and buildings, matters to which my 
business and professional activity has been largely 
devoted; and the rest of this message will be 
confined to the suggestion of certain general 
reforms of administration and finance which I 
have long felt to be essential to the eflEiciency 
of the government and the development of the 


The financial condition of the city should com- 
mand the attention not only of the City Council 
but of the citizens at large. The indebtedness 


of the city is larger than ever before, and is 
increasing at a dangerous rate. We owe more 
money and raise more taxes, per capita, than any 
other large city in the country. The gross debt 
is now $56,440,361.06, or |6,863,791.77 more than 
on Jan. 1, 1889; and the net debt is $31,053,- 
496.98, or $4,202,594.99 more than two years ago. 
The tax-levy has also been raised, the increase 
in valuations enabling the city to vote an annual 
appropriation order, during the past two years, 
averaging $1,040,980 more than the average ap- 
propriation orders of the preceding four years; 
and the amount of the appropriations for 1890 
was within $176,281 of that for 1884, the size 
of which frightened the citizens into demanding 
a statutory limitation of the tax-rate. Notwith- 
standing this increase in the annual tax-levy, and 
the fact that large additional sums have been 
secured for current expenses from the funded 
debt (a practice wholly indefensible on general 
principles), the outgoing city government has 
already, in the first eight months of the current 
year, expended so much of the annual appro- 
priations that it will be strange if there is not 
a deficiency in several departments before May 1. 
All this might be borne without public com- 
plaint if the citizens were receiving equivalent 
public advantages. But there is a well-founded 
belief that this is not the case, and that for 

• / 


the money we spend we should obtain far 
greater municipal benefits. Improvements under- 
taken several years ago are still awaiting com- 
pletion; other improvements necessary to the 
growth and prosperity of the city cannot even 
be considered; the condition of the streets is 
bad; the construction of new streets proceeds in 
as slow and unsatisfactory a way as ever; the 
demand for new school-houses and the extension^ 
of our public-school system in the line of indus- 
trial education has not been met; and in other 
respects the tax-payers justly feel that they are 
not receiving anything like a full equivalent for 
the constant increase in taxation and indebted- 

Not only are our taxes increasing in amount, 
but the method of assessment renders them un- 
necessarily burdensome. The double taxation of 
incomes, credits, paper values, and other forms of 
intangible property is a burden upon our mer- 
chants not imposed on their competitors in the 
other mercantile centres of the country, and con- 
stitutes one of the chief drawbacks to the com- 
mercial progress of the city. 

Inasmuch as every dollar raised by taxation 
comes eventually from the masses of the people 
and largely from the wages of labor, it is the in- 
terest of all the citizens that the causes for this 
condition of things should be investigated, and a 


remedy, if possible, discovered and applied. Much, 
doubtless, can be accomplished by reforms in the 
administration of the various departments, particu- 
larly by such changes in methods as will tend to 
secure a greater concentration of service and re- 
sponsibility, and a complete return in work for 
the very liberal expenditure in salaries and wages ; 
but 'in the meantime it lies within the power of the 
City Council and the State Legislature to inaugu- 
rate certain general reforms in our system of mu- 
nicipal government which will of themselves enable 
us, on the one hand, to realize the desire of the 
people for a broad and progressive municipal policy 
without an increase in taxation, and, on the other 
hand, to simplify and render less burdensome the 
taxes now collected. 


' The present condition of affairs is due, in my 
judgment, not only to defective administrative 
methods, but to the loose, haphazard, and unsys- 
tematic way in which public improvements have 
been undertaken, to a radically bad system of tax- 
ation, and to the dependence of the City Govern- 
ment on the State Legislature. 

The social change which has taken place during 
the past fifty years in the concentration of popula- 
tion in the great cities of the country has not been 


recognized in legislation. The city of Boston is 
no longer a New England town on a large scale : 
it is a great commercial and industrial city, the 
metropolis of New England, with a population 
greater than that of the whole State of New Hamp- 
shire ; and it should no longer be kept in the lead- 
ing-strings of the General Court, with le&& powers 
of self-government than those of many large cities 
in the most centralized monarchies of Europe. 
The prediction made at the time when our first 
city charter was adopted, that *Hhe only bill of 
rights of the town of Boston shall be the will of 
the Legislature of Massachusetts,'^ has been ful- 
filled; and the power of the Legislature over city 
affairs has often been exercised without the ap- 
proval of the people or the City Council, some- 
times in the very face of municipal objection, and 
generally without regard to the future develop- 
ment of the city. 

No stronger instance of the unfortunate conse- 
quences of the legal relations that have hitherto 
obtained between the City and the State can be 
found than that furnished by the manner in which 
the control of the streets of Boston has passed from 
the citizens to private corporations. The courts 
of law took away from the abutters their common- 
law rights in the soil of the highways, and vested 
these rights in the State; and successive Legisla- 
tures thereupon proceeded to grant them out to 



private corporations without compensation to the 
abutters, either as individuals or as members of 
the municipal corporation. The evil results of this 
theory of the respective rights of the State, the 
City, and the individual in the public ways have at 
last become apparent ; the supposed business neces- 
sities of one generation have proved the burden of 
the next; and although an escape from the present 
conditions may be difficult, a proper regard for the 
public interest requires that a change should be 
made from a system that deprives the municipality 
of the large revenue it might obtain from the use 
of its streets. 

Another instance is found in our system of 
taxation, which, created and limited by general 
State laws, is wholly inadequate to the needs of 
the city of Boston, however suited it may be to 
those of the smaller country towns. If the city 
had the power to raise its taxes (at least for 

/ municipal purposes) in such manner as it saw 
fit, it would undoubtedly adopt a radically differ- 
ent system from that which the Legislature might 
properly determine to be best for the smaller 
towns. It would certainly, for instance, be profi- 
table for the city of Boston to have the right 

• to levy its taxes to a less extent on credits and 
other forms of personal property than is possible 
to-day. We should very likely prefer to raise 
some portion of the $2,600,000, or thereabouts, 


now collected from personal property, by » a tax 
on legacies and successions. It would help the 
city treasury if the State tax now collected from 
private corporations enjoying municipal privileges 
should either be apportioned among the cities 
and towns of the Commonwealth in proportion 
to the value of the locations granted by them, 
rather than according to the residence of the 
individual stockholders, or abolished altogether, 
leaving each city free to tax these corporations in 
such manner as it should deem equitable. The 
city interest account could be reduced if its bonds 
were exempt from taxation ; the amount annually 
collected by taxing these bonds being insignifi- 
cant in comparison with the benefit to the city 
to be realized from their exemption, by enabling 
it to place its loans at a lower rate of interest. 

Again, it seems to me that the city should 
have the right to undertake for itself, if finan- 
cial and other conditions permit, all functions of a 
public character now commonly intrusted to pri- 
vate enterprise. It would doubtless generally be 
the case that these rights would not be exer- 
cised, but the possession of them would put the 
city in a better position to make terms with 
individuals and corporations seeking municipal 
privileges than is now the case. 

In other words, the main need of Boston is 
greater powers of self-government; a result to be 


achieved not so much bj increasing or ex- 
tending the functions of government as a whole, 
as by transferring them from the State to the 


There is another reform in taxation which is 
peculiarly necessary to the city of Boston. The 
present plan of building new streets is at variance 
with all sound principles of taxation, and has 
been abandoned in many of the newer cities of 
the country. The entire cost of building new ^ 
streets should be borne bv the abutters who are 
the persons principally benefited, and not as at ^ 
present by the city. There would be still some 
cases which it would be well to exempt on public 
grounds from the operation of this principle, bijt 
it should apply to all ordinary street extensions 
and improvements. 

A board or commission, charged with this 
special duty, should first lay out streets in the 
outlying wards, where rights of way can be 
obtained, on a comprehensive system adapted to 
the growth of the city for years to come, and 
determine the location, grade, and other details. 
A certain proportion of the abutters on any of 
these projected streets should have the right to 
compel the city, on petition, to construct the 


street, which should be immediately filled, graded, 
paved, and suppUed with sewers, water, curb- 
stones, and sidewalks. The gas companies and 
other private corporations likely to ask for loca- 
tions in that street should be compelled to put 
in their pipes, poles, and wires at the outset. 
The money needed to build these streets should 
be provided by special loans outside the debt 
limit, and the entire expense to the city should 
be divided pro rata among the abutting estates, 
and charged as a first lien upon them payable, 
on long time, with interest at 6 per cent. The 
financial part of the business could be in charge 
of the Sinking-Fund Commissioners. 

The result of this change would be a slight 
increase in the cost to builders of getting their 
houses ready for the market; but I am satisfied 
from personal experience that the compensating 
advantage to all persons engaged in the improve- 
ment of real estate, in having the streets actually 
built and completed when wanted, would outweigh 
the increased cost to them.' The benefit to the '^ 
treasury of the city is diflScult to compute, as the 
books of the various departments are not kept in 
such a manner as to render it easy to distinguish 
between expenditures for new streets, and expen- "^ 
ditures for ordinary street repairs. Takij;ig account, 
however, of the money spent by the Street De- 
partment alone, including the general appropria- 


tion for the year and all special appropriations 
and loans, I believe that the proposed change 
would effect a saving of about half a million dollars 
a year in this single department. There would 
also be a saving in the other departments in- 
trusted with separate portions of the work of 
street building, and a profit in the interest account. 
The city ought to save in this way at least enough 
money to clean the streets and water them. 

Apart from the financial benefit to the city treas- 
ury, the proposed change would, in my judgment, 
give a great stimulus to building operations; the 
demand for street improvements would be greatly 
increased ; the money would be on hand to pay for 
them; permanent employment would be furnished 
to a far greater number of city laborers than is 
now possible; the repeated tearing up of the streets 
would be done away with to a great extent; and 
the growth and progress of the city would be 
rapidly and scientifically advanced. 


In connection with the general subject of streets 
I have one further recommendation to make, and 
that is, that all those departments or portions of 
departments which to do with the construc- 
tion, maintenance, and repair of the public streets 
should be consolidated in one department, under 


one responsible head. This work is now divided 
between the Street Department, the Department of 
Sanitary Police, the Department of Bridges, the 
Department of Sewers, and the Water Board. 

Everybody recognizes that this division of re- 
sponsibility and work inures to the disadvantage 
of the city in many ways ; but there has been no 
general agreement as to the best method of relief. 
I am opposed to the creation of a board of public 
works, and also to the consolidation under a single 
head of more departments than one first-class man 
can direct; and I do not apprehend that much 
could be saved in the way of salaries, as there 
would still, be* a necessity for separate bureaus or 
divisions, each under a responsible head, for the 
different branches of the work. I believe, how- 
ever, that one man can easily take general charge 
of the entire work of street construction and re- 
pair, and that a consolidation in one department 
under a single head directly responsible to the 
Mayor of all the work on the streets now done 
by five or six departments would promote economy, 
end the present friction between these departments, 
enable the labor, machinery, and appliances at the 
city's command to be used where most needed, 
and help to solve the vexed question of the per- 
manent employment of the city laborers in these 




I have called attention to the necessity for lay- 
ing out the future streets of the city upon a sys- 
tematic plan. There is another problem connected 
with the streets which should also be treated in a 
comprehensive, far-seeing spirit, to the end that all 
danger of repeating in this case the mistakes in 
laying out, widening, and extending streets which 
have already been so costly to the city may be I 

avoided. I refer to the problem of rapid transit. 
Many schemes have been suggested during the 
past few years, none of which, it is safe to say, 
are entirely satisfactory. On the other hand, the 
'demand for rapid transit is a genuine one, and 
should be met at an early date. I believe that 
the city government itself should grapple with 
this problem and endeavor to settle it to the satis- 
faction of the people, rather than leave the matter 
entirely to the interested action of private cor- 

I recommend, therefore, the appointment of a 
commission of experts, consisting of five persons, 
to be appointed by the Mayor, and to receive a 
sufficient compensation, and an appropriation for 
clerical, travelling, and other expenses, whose duty 
it shall be to consider the whole subject of rapid 
transit, including elevated roads, tunnels, routes, 
systems, damages, companies, and in particular the 


best means of protecting the financial interests of 
the city as a corporation. While the latest plan 
presented ' by the West End Railway Company 
contains features of merit, and while this company 
can alone furnish to the people the benefit of a 
continuous trip on both elevated and surface sys- 
tems for a single fare, yet the present financial 
condition of the city precludes, in my opinion, the 
consideration of this proposition. On the other 
hand, the company has no right to condemn land 
for the purpose of building an elevated road on 
the route proposed. 

As matters stand, there can be no rapid transit 
road across the city until the State Legislature 
or the city government shall act. I believe the 
proper course to pursue, both in the interest of 
the city treasury and of the citizens at large, is 
for the city government to take the whole matter 
into its own hands, and, without attempting to 
interfere with the charter rights of existing cor- 
porations, proceed, by means of a special com- 
mission, to devise a plan for rapid transit that 
shall be permanently useful to the people and 
profitable to the city. Any such plan thus re- 
ported and adopted by the city government 
would undoubtedly receive the sanction of the 

I would have this commission consider also 
the kindred matter of quicker communication 



between the city proper and East Boston, South 
Boston, Charlestown, and Cambridge. The ferries 
and drawbridges are a source of great annual 
expense, and it is worthy of careful consideration 
whether this expenditure cannot be greatly dimin- 
ished by the construction of permanent means of 
communication across or under the Charles river 
and the harbor. 


The various problems connected with the 
Charles-river basin should receive immediate at- 
tention. The railroad and other tide-water bridges 
interfere with navigation, and block the river for 
at least two hours of every tide to the passage 
of small boats. On the other hand, the re- 
construction of these bridges in the sole interest 
of a freer navigation would diminish greatly the 
facilities for getting in and out of the city. "We 
have, also, in this basin the opportunity for making 
the finest water park in any city in this country; 
an opportunity which should be grasped before 
too late. 

The eventual solution of this whole problem 
should, I think, be an imitation of the plan adopted 
by the city of Hamburg, under similar circum- 
stances. We should dam up the stream at the 
narrowest point between Charlestown and Boston, 


and lay out a series of parks and boulevards along 
the basin thus created. TJie interests involved are 
so many and so complicated, that it would be use- 
less to speculate at present on the cost or even 
the possibility of carrying out this idea; but it is 
possible to ascertain the facts, and I would sug- 
gest as the best way of getting at them, that the 
city government petition the Legislature to author- 
ize the Governor to appoint a commission to con- 
sider the whole subject and report to the next 


One of the chief improvements undertaken in 
recent years is the extension of our park system. 
It is to be regretted that constitutional objections 
prevent the application to these improvements of 
the practice obtaining in foreign countries, where 
the expense of similar undertakings is reduced, and 
in many cases entirely covered, by condemning the 
surrounding land and selling it on completion of 
the park, thus enabling the city, rather than pri- 
vate individuals, to reap the benefit to neighboring 
property. I believe, however, that this principle 
could be applied, legislative authority being first 
obtained, to some of the park improvements which 
the city will be called upon to undertake during 
the next few years. I commend this matter to the 
consideration of the City Council. 



The present high standard of our public schools 
should be maintained, and the appropriations for 
this purpose should be as liberal as possible. 
Their eflSciency can be further increased, in my 
judgment, by the gradual introduction into our 
public-school system of instruction in the man- 
ual and industrial arts. A manual training high 
school should be established at once. It is ob- 
vious that new buildings are needed for this pur- 
pose, and also to meet the increase and shifting of 
population. The establishment of a parental truant 
school has also been directed by act of the Legis- 
lature. These buildings should be constructed 
with a view to economy, durability, and hygienic 
considerations, rather than architectural adorn- 
ment; and a part of the cost should be defrayed 
by the sale of several school-houses, which are 
now no longer needed. 

architect's department. 

In connection with the building operations of 
the city I would suggest a reconstruction of the 
Architect's Department. The present system costs, 
as near as I can ascertain, more than double 
what private owners would pay for similar ser- 
vices, '.nd prevent the ci,/ L. ^™g the 
benefit of progress and competition in design. I 


recommend an early consideration by the City 
Council of the details of this much needed 


The building laws stand in need of revision. 
I commend to your attention the report made to 
the last city government by the commissioners 
appointed for that purpose. The revision proposed 
by them contains many sections of great value, 
but can, I believe, be still further improved. I 
shall take an early opportunity of submitting to 
the City Council a redraft of the proposed law. 


A special reform which I think should be 
inaugurated at once is a change in the fiscal 
year. A month or six weeks ought to be suffi- 
cient to enable the departments to close up the 
business of the financial year, and to get ready 
for the new one. The present system holds out ^ 
the temptation to the out-going city government to 
unload its financial difficulties upon the next, and 
the new city government has consequently for 
the first four months to bear the burden of the 
mistakes of the preceding year, and usually to 
make up large deficiencies in appropriations which 
should have been taken out of the tax-levy of ^ 
the previous year. I believe that the fiscal year 


should correspond as nearly as practicable with 
the calendar year, and I suggest February 1 as 
an available date for that purpose. 


Among the foregoing suggestions there are 
three which require action by the City Council 
alone; namely, the change in the fiscal year, the 
consolidation of the various street departments, 
and the appointment of a rapid transit commis- 

The other reforms recommended, namely, the 
change in our system of laying out, building, and 
paying for street improvements, the various 
changes in our system of taxation, and the ap- 
pointment of a commission to consider the pos- 
sibilities of the Charles-river basin, all require 
action by the State Legislature, and this should 
be based on the request of the city government. 

I have confided this inaugural message to the 
recommendation of certain radical reforms in our 
methods of taxation and of conducting public im- 
provements, because I have long been convinced 
that changes of this character must be made before 
the citizens of Boston can hope to have a satis- 
factory and progressive municipal administration 
without an increase in taxation. 

I believe that public opinion is very generally in 


fayor of tax refonn in the direction here suggested, 
as indicated by the fact that one of the great 
political parties of the State declared in its plat- 
form of 1890 that ^ the time has come when cities 
and towns should be intrusted with larger powers 
of home rule in matters of taxation and municipal 

It has been characteristic of the people of 
this Commonwealth and city to lead the way in 
movements of progress and reform. The times 
are ripe for well-considered and eflfective im- 
provements in municipal administration; and I 
should, I believe, misinterpret the sentiments of 
my fellow-citizens if I did not assume that they 
wiU give a hearty and popular support to all 
earnest efforts to prevent Boston from falling 
behind other cities in this and foreign countries 
in the progressive development of the methods 
of municipal government 



December 31, 1890. 
To the Mayor. 

Sir : — In answer to your circular letter of December 20, 1890, 

I would state that the expenses of this Department for the financial 

year 1890-91 to December 81, 1890, have been $18,723.45, 

leaving a balance of $7,976.55, which will be sufiScient for the 

financial year ending on April 30, 1891. 

Herewith please find statements of the debt and Sinking-Funds 

of the City of Boston and County of Suffolk. 

Very respectfully, 

James H. Dodge, 

City Auditor. 


The Cmr and Countt Debt. 

Gross funded debt, December 81, 1889 .... 951,185,741 09 
Add funded debt issned in 1890 5,462,000 00 

$56,647,741 09 
Dednct fnnded debt paid in 1890 1,207,880 08 

OroM debt, December 81, 1890 (55,440,8610 

Sinking-Fnnds, December 81, 1889 . . #22,789,195 98 
Receipts dnring 1890 2,775,892 44 

#25,564,588 87 
Payments dnring 1890 .... 1,226,448 23 

#24,888,140 14 
Bonds and mortgages the payments of which 

are pledged to the payment of debt . 48,728 94 
Total redemption means, December 81, 1890 . 24,886,864 08 

Net debt, December 81, 1890 #81,058,496 98 



Gross debt, December 81, 1890 955,440,861 06 

Gross debt, December 31, 1889 51,185,741 09 

Increase $4,254,619 97 

Net debt, December 31, 1890 $81,058,496 98 

Net debt, December 31, 1889 28,321,788 06 

Increase $2,731,708 92 

City debt, indnding balance of debts assumed by acts of 


County debt ......... 

Cochituate Water debt 

Mystic Water debt 

$85,226,087 08 

8,229,000 00 

16,246,278 98 

789,000 00 

$55,440,861 06 

At the present time the assumed debts remaining unpaid are, on account 

Charlestown City 
Mystic Water . 



• • • 

$502,000 00, 

bearing 6% 

$888,000 00 

" 6% 

108,000 00 

" 6% 

18,000 00 

" 4% 

240,000 00 

" 3i% 

85,000 00 

789.000 00 

" 3J% 

West Rozbury 

$1,241,000 00 
25,000 00 

$1,266,000 00 



Statement showing borrowing limit, December 81, 1890 

Total Debt, City and County, December 31, 1890 
Less Special Loans (outside 

of limit) . . . $5,261,000 00 
Cochituate Water debt . 16,246,278 98 
Mystic Water debt . 789,000 00 
County debt (outside 
of limit) . . . 2,400,000 00 

Amount carried forward^ 

$55,440,861 06 




24,646,278 98 
$30,794,087 08 




Amount brought forward, $80,794,087 08 

Sinldng-Fands 924,838,140 14 

Less Cochitaate Water Sink- 

ing-Fund . . . 95,854,530 21 
Mystic Water Sinking- 

Fund .... 719,722 81 
Public Park Conatmction 

Sinking-Fond . . 287,776 16 
Special Loans Sinking- 
Fond .... 187,646 49 
Coonty Coort-Hoose Sink- 
ing-Fond . . . 81,957 25 

7,081,682 92 

: 17,256,507 22 

Net debt, excluding debts ootside of limit .... # 18,537,579 86 

Two per cent, on $733,786,943, average raloation for flye 

years, less abatements $14,674,738 86 

Debt aa above 13,537,579 86 

Right to borrow, under Chap. 178, Acts of 1885, December 
31, 1890 $1,137,159 00 

Gross Debt akd Debt Requirehents. 

Debt upon 

which Intereflt 

was paid. 




Paid from 
Taxet other 
than Water. 


from Water 



from Taxes 

other than 






1878-70 . . . 
187»-80 . . . 
1880-81 . . . 
1881-82 . . . 
1882-88 . . . 
1883-84 . . . 
1884-86 . . . 
1886-86 . . . 
1886-87 . . . 
1887-88 • . . 

ItKK^ov • • • 

1860^00 . . . 

. $42,860,816 28 
42,080,125 86 
40,040,882 18 
40,070,812 04 
41,184,368 12 
48,186,660 07 
42,062,180 02 

. 48,628,822 (M 
46,700,062 72 
48,008,808 46 
40,020,476 26 
68,080,006 22 

$1,666,764 66 
1,670447 66 
1,686,640 01 
1,627,144 06 
1,402,877 10 
1,638,072 82 
1,620,000 10 
1,511^8 41 
1,628,074 78 
1,601,600 28 
1,608,862 68 
1,642,276 76 

$685,406 70 
706,002 08 
684,621 62 
661,410 76 
602,208 80 
608,078 41 
717,618 07 
780.688 78 
788,740 26 
7n,007 06 
788,117 82 
802,227 88 

$664,008 00 
405,704 00 
608,666 00 
781,601 00 
720,160 00 
768,278 00 
780,408 00 
648,068 00 
626,006 00 
740,107 00 
808,080 00 
882,272 00 

$248,328 82 
267,706 80 
227,440 20 
278,804 04 

280,260 80 
186,822 11 
860,083 68 
260,088 06 
270,490 01 
826,860 10 



Loans Authorized bt Statute Outside of Debt Limit. 





Date of 








Public Park Goiutractloii . . . 

Suffolk County Court-Houie . 

Harvard Bridge 

Public Park Lands 

Sewer, Tremont itreet .... 

Stony Brook ImproTement •■ . 

Public Park Landi 

New library Building .... 

W. Cheater Park Eztenrion • • 

CongreM street and Oliver 
■treet Extension 

Improved Sewerage 

Public Parks, Oharlestown . . 


1 2,500,000 










June 21,1886, 
March 21, 1887, 
May 18,1887, 
May 26,1887, 
June 11,1887, 
June 16,1887, 
May 23,1888, 
March 1, 1889, 
AprU 12, 1889, 

April 26, 1889, 
May 9, 1889, 

May 5 and 

June 28,1890, 







Total • 



> In addition to the cost of the land. 



Loans of 1890. 

Date of Order. 

Jan. A, Feb. 10, 
aod Dec. 31, 

Mar. 18,1889. 

Not. 18,1880. 

Not. 18,1880. 

Jan. 8, 1800 . 

Jan. 8, 1800 . 

Deo. M, 1880, 
and Jan. 24, 

Feb. 11,1800. 

Mar. 1, 1800 . 

Mar. 10,1800. 

Oct. 18, 1800 . 

Oet. 18, 1800 . 

Oet. 17, 1800 . 

Debt iMned since Jan. 1, 1800. 

PnbUo Park Constmotion . 
New library Bnlldlng . . • 
Additional Supply of Water 
Bxtenaion of Maine, ete. . . 

Hlffh Serrlee 

Suffolk Oonnty Conrt-Honee 


Fublio Park Lands .... 



Bxtenaion of Maine, eto. . 
Public Parka, Oharleatown 

Total $5,482,000 00 

Included In 
Debt Limit. 

$1,087,000 00 

674,000 00 

870,000 00 

$2,281,000 00 

Outside of 
Debt Limit. 

$600,000 00 
811,000 00 
800,000 00 
20,000 00 
100,000 00 
800,000 00 

800,000 00 
100,000 00 

260,000 00 
200,000 00 

$8,181,000 00 


Janttart 1, 1891. 
To the Mayor. 

Sm: — The assesBmentB committed to the Collector for the 
financial year beginning May 1, 1890, not including Cochitaate 
and Mystic water rates; amount to $12,220,946.72. Of this 
amount there has been to December 31, 1890, $10,120,429.57 col- 
lected; $85,505.36 abated, and $2,015,011.79 remains uncol- 
lected. This includes the State, City, and County taxes, $10,- 
996,923.15, of which $8,980,135.32 has been paid, $70,698.81 


abated; leaving $1,946,089.02 unpaid, and the Bank tax, $891,- 
812.80, all of which has been paid. 

The Cochituate water rates, assessed on the first of January, 
1890, and additional and meter rates assessed during the year, 
amount to $1,476,287.38. There has been paid of these assess- 
ments $1,228,627.01; abated, $79,015.061 ; eaving $168,645.31 
uncollected. The Mystic water rates for the same time stand as 
follows : Assessed, $336,904.76 ; paid, $307,651.61 ; abated $28,- 
532.94; unpaid, $720.21. 

The total receipts in money from all sources from May 1, 1890, 
to December 31, 1890, both inclusive, amount to $18,325,109.38. 

A general Bummnry of the ftccounts shows that the balance 
of bills and assessments ontstanding January 1, 1890, 
was $2,610,821 66 

The assessments from January 1, 1890, to December 81, 

1890 14,208,989 15 

Cash deposits from January 1, 1890, to December 81, 1890, 2,499,090 43. 

Total amount charged to Collector $19,318,901 24 

The Collector is credited with abatements . $612,728 62 

Cash paid City Treasurer .... 15,958,060 89 

16,565,784 01 

Balance uncollected $2,758,117 28 

The amount appropriated for the expenses of the department 
was $71,410. The amount expended to date, $55,652.84, leav- 
ing a balance unexpended of $15,757.16, sufficient to continue 
the work to the dose of the financial year. 


Jambs W. Rickeb, 

City CoUectar. 




Cut Treasxtber's Opmcb, January 1, 1891. 
To tJie Mayor. 

Sm: — The undersigned herewith presents a statement, in 
compliance with youi* request of December 20, 1890, of the 
receipts and payments of the City of Boston and County of 
Suffolk for the year 1890, beginning January 1, 1890, end- 
ing December 81, 1890, showing the balance of money remaining 
in the Treasury December 31, 1890, and where deposited, and 
of the other matters referred to in your communication. 



Alfred T. Turner, 

City Treasurer. 

For the Tear 1890, 

Oiuih 'RftlAnftA. tTannArv 1. 1800 . ..... 

$4,400,651 82 


From City Ck>Ue«tor :>~ 

On acooant of Olty of Boston . . 

$16,700,630 88 

On aoeonnt of County of Suffolk . 

219,282 37 

$16,979,802 70 

Temporary Loans : — 

A ntlH nation of Taxes. 1890. &M  . • 

1,500,000 00 

^ City Loans :~ 

Miscellaneous Purposes, 8ij( 

$1,037,000 00 

PubUo Park Lands, S|)( 

000,000 00 

Public Park Construction, 4i( . . . . 

600,000 00 

New Public Library Building, Dart- 
month street. 44 ..••■.... 

811,000 00 

Miscellaneous Purposes, 4^ 

1,244,000 00 

Public Park, Charleetown District, 4)(, 

200,000 00 

8,892,000 00 

Carried forward 

$21,871,802 70 

$4,400,051 82 



Mrouoht fbrtDard .....a.^.a 

$21,871,802 70 

$4,400,061 81 

Coehitnate Waler Loans : — 

TTIffli R<irvlA«. SM 

$200,000 00 
20,000 00 


Szteoslon of Mains, efee.»Sj(j(. . . • • • 

Sztenaion of Mains, ete., 4^ 

250,000 00 

Additional Supply of Water, 4)t . . . . 

800,000 00 

770,000 00 

Snflolk Coanty Loans : — 

Suffolk County Gonrt-Honse. 8M • . • • 

800,000 00 

Premium on Loans negotiated : — 

Oitv TiOans ..■..■■■■..... 

$06,006 04 
87,700 00 

Oochitnate Water Loans 

OonntT TiOans ..«>■...>■..• 

9,408 00 

142,719 04 

Public Library Tmst Fnnds : — 

Beauest of Josenh SchoUleld • • • • • 

11,780 07 

Board of Commissioners of Sinking- 
Fnnds: — 


Vot navment of debt .......a. 

$1,190,880 08 
909 84 

For cost of Redemption of Sterling Debt, 

110 41 

1,101,400 28 

Pay.Eoll Tailings from Paymasters, Settle- 
mento with Cashier, parties unpaid 
on; — 

City account »....*■*••. 

$80,110 70 
712 71 

Conntv account ..aa*..... 

80,820 41 

107 00 

120,270 79 

Tax Titles, received from owners to 
secure estates sold for taxes 

Interest on Bank Deposits ,,,»,»,, 

24,448,082 49 

$28,848,734 31 


On account of the City of Boston :— 

On Mayor's Drafto : — 

General Drafts • 

*$0,878,812 02 

Oarrisd fonDord 

$0,078,821 02 

* Amount of General Drafts through City Auditor's Office, 

from Jan. 1, 1800 ■«••••••.••••• $6,686,100 17 

Less : Amount not paid Dec. 81, 1800 8,482 81 

Add : Outstanding Dec. 81, 1880, paid 

$6,077,688 86 
687 66 

$6,678,821 02 



Brought forward 


BpeoUl Drftfts 

Commonwealth of MMsaehosetU :— 

Btate Tax, 1890 

National Bank Tazai, 1800 . . . 

Liquor Lleenae Bevenne, 1880-00 
<« •! fi 180<^1 

Armory Loan Afloeaament . . . . 

Board of Commiiaionera of Blnking- 
Fnnda: — 
Serenue payable nnder authority of 
Ordinance on Finance 

Premium on Loans negotiated 

Pay-Boll Tallinge, paymenta by Caahler 
to parties not paid by Paymaatera . • . 

Pnblic Library Tmet Fnndi 

Police Charitable Fnnd 

Bowdoin (Dorcheiter) School Fond . . 
Mount Hope Cemetery Tmat Fond . . 
City Debt due prior to May 1, 1800 . . . 

Old Chdms, Mayor** Drafto 

Sewer Aiaeaamettta refunded 

Protested Sewer Aaseaaments refunded 
Taxes, etc., refunded ...••.... 
Oochituate Water Rates refunded . . • 
Tuition of Non-Residents refunded . • 
Carried forwani 

0,678,891 OS 

•0,028,086 8s 

6,218,416 21 

$646,767 60 

684,070 40 

827 16 

262,826 00 

720 76 

28,066 27 

$48,284 70 
108,108 74 

1 10,844,898 66 

1,612,686 07 

241,888 68 

20,806 14 

21,800 00 

0,600 00 

4,600 00 

8,000 00 

8,000 00 

620 27 

8,065 84 

407 44 

042 88 

1,281 08 

119 40 

$21,777,720 25 

*Pay-Roll Drafts through City Auditor's Office, from Jan. 1, 
Less:Not'paldi>ec'8i,'l»o' '•!!!'.! '. *.!!!'.! *. '. ! 

$6,088,528 80 
88,807 87 

Add : Outstanding Dec 81, 1800 

$6,800,716 02 
28,870 81 

$6,023,086 88 

tlndudes City Debt paid 

Temporary Loans « 

Mystic Water Debt 

Cost of redemption of Sterling Debt 

$1,088,880 08 

1,500,000 00 

100,000 00 

069 84 

$2,680,840 87 

t.Inoludes Interest paid : — 

On City Debt 

Coehltaate Water Debt 
Mystic Water Debt . . 

$1,570,168 28 

767,359 88 

42,207 50 

$2,870,725 16 



Stouaht fonoard ••••..•••• 

$21,777,729 25 

174 75 

127 19 

98 60 

1,584 16 

6 91 

6 88 

Myitte Water Rates refanded ..••.. 

Reeldae Tax Balee, etc •.. 

Tax Titles 

Protested Twees refnnd<^ ...*.•.• 

Psyments on acoonnt of Ooimty of 
Baflolk: — 

$21,779,522 74 

Allowed by Auditor of Ooimty of Suf- 

•660,140 55 
1 469,211 75 

Mayor's Speelal DrafU 

Pay.RoUTaiUnss, paymento by Cashier 
to parties not psld by Paymasters . 

841 94 

Ck>imty Fines to Complainant . • t . • 

286 50 

Judgment for Costs of Bait, etc 

28 72 

County Fines, Award for Neglect to Sup- 
port Wife and Children 

20 00 

Old Claims, Allowances of Auditor . . 

6 75 

Bounty for Destruction of Seals .... 


1,129,984 21 

t $22,909,506 96 

$4,400,651 82 

** Beoeipts on account of City of Boston 

$28,418,729 41 

•« " •* " County of Suffolk 

1,029,858 08 

24,448,062 49 

$28,848,784 81 

Payments on account of City of Boston • 

$21,779,522 74 
1,129,984 21 

" " " ** County of Suffolk. 

22,909,606 95 

Cash b^anAA. TIac. 81, 1800 , . 

$5,989,227 86 


• County Requisitions throng County Auditor's Oflice from Jan. 1, 1890 
Less : Amount not paid Dec. 81, 1890 

. $660,065 51 
427 80 

Add : Outstanding Deo. 81, 1880, paid 

$659,688 21 
602 84 

•Includes County Debt paid 

t Includes Interest paid on County Debt 

$660.140 55 

$17,000 00 
$105,217 88 



Balance December 31, 1890, as per preceding statementa, 
as follows : — 

Atlantic National BazA 

AtlasNatlonal Bank 

Blackstone National Bank 

Boston National Bank 

Broadway National Bank 

Banker HIU National Bank 

Central National Bank 

Columbian National Bank 

Commercial National Bank 

Continental National Bank • 

Everett National Bank 

Fanenil Hall National Bank 

First National Bank 

First Ward Natloaal Bank 

Fourth National Bank 

Freeman's National Baak i 

Hamilton National Bank 

Lincoln NatloB«l Bank 

Manufacturers* National Bank 

Market National Bank 

M^faachnsetts National Bank 

Maverick National Bank 

Mechanics* National Bank 

Monument National Bank . . . j , . . , .. 

Mount Vernon National Bank 

National Bank of the Commonwealth . . . 

National Bank of North America . . . . < 

National City Bank 

National Bagle Bank , 

National Exchange Bank , 

National Hide and Leather Bank 

National Market Bank of Brighton .... 

National Rockland Bank , 

National Security Bank 

National Union Bank 

Carried forward 

J • » • 

$100,864 80 
160,388 28 
100,364 M 
100,864 80 

60,180 16 
100,871 80 
»M),a71 28 * 
100,818 «7 

86,068 48 
100,868 01 

75,101 00 
100,264 80 

100,880 ai 
80,aja6 04 

100«8A6 68 

»»,2tl(6 68 

100,281 92 

T6/800 00 

76,184 93 

100,246 57 

100,238 ^ ', 

76,172 60 

60,162 74 

60,136 64 

60,162 08 

100,246 68 

100,246 58 

100,246 68 

100,225 00 

100,230 18 

200,460 82 

60,133 86 

76,197 27 

75,212 67 

100,218 60 

$3,162,823 48 



Brought forward 

National Webflter Bank 

New England National Bank 

North National Bank 

Old Boston National Bank 

People*! National Bank 

Second National Bank 

Bhawmnt National Bank 

Third National Bank • 

Traden National Bank 

Tremont National Bank 

Globe National Bank 

Howard National Bank 

National Bank of Bedemption 

National Bank of the Republic 

National Revere Bank 

National Seenrlty Bank, Pay-roll Tailings account . . 

Caah deposited In Banks 

Cash and Cash Tonchers In office, Including payments 
made on January, 1891, draft • 

$3,102,823 43 \ 
100,230 11 ' 

. 100,164 38 
100,280 IS 
1004280 14 
76,200 20 
200,400 28 
100,280 18 
100,268 04 
60,140 00 
100,216 58 

$4,200,104 61 

263,062 24 
304,768 86 
278,101 68 
616,706 07 
191,410 86 
7,977 69 

$6,866,111 88 
88,116 97 

$6,939,227 86 








JANUARY 4, 1892. 


Rockwell and Churchill, City Printers. 

I 892 . 








JANUARY 4, 1892. 

Rockwell and Churchill, City Pruttbrs. 

I 892. 


In Boabd of Aldebmen, 

January 4, 1892. 

Ordered^ That His Honor the Mayor be requested to ^ i 

furnish the City Council with a copy of his inaugural 
address for publication. 

Passed. Sent down for concurrence. January 4, came 

up concurred. 

A true copy. 


John M. Galyin, 

OUy OlerJc. 


Gentlemen of the City Council of 1892: 

The chief ftmction of the City Council, as the 
legislative branch of the City Government, is to 
determine the amounts of money which the exec- 
utive departments shall be authorized to ^expend 
during the year, and the manner in which the 
money shall be raised. The exact financial con- 
dition of the city should, therefore, be carefully 
considered at the outset of your deliberations. 


Tables hereto appended give the history of our 
city debt since 1822, and show an increase at 
times and in the aggregate wholly disproportionate 
to the benefits obtained, viewed from the stand- 
point of to-day. 

"While few will criticise the use of the city's 
credit to procure money for systematic and well- 
considered improvements, — such, for example, as 
our Park, Improved Sewerage, and Water sys- 
tems, — no one who looks carefully over the list 


of objects for which the city has issued loans 
since its incorporation in 1822, aggregating over 
$100,000,000, can escape the conclusion that a 
large part of the money has been borrowed im- 
providently and expended injudiciously. These 
loans and the resulting present indebtedness of 
the city are not only excessive in respect to the 
number of citizens and their aggregate wealth, 
but seem also out of proportion to the value, to 
the present and succeeding generations, of the 
improvements in which the money has been sunk. 

Eealizing the unportance of these consider- 
ations, the City Government of 1891 borrowed 
only $2,716,500, and the net debt was reduced 
during the year by $350,138.64, or from $31,- 
053,496.98 to $30,703,358.34. 

The policy of permitting no increase in the 
net city debt, and of borrowing nothing for cm- 
rent expenses, thus inaugurated, was deliberately 
made the platform of the successful party at the 
last municipal election ; and the verdict of the 
citizens on that occasion cannot be regarded 
otherwise than as an emphatic demand on their 
part for a continuance of that policy. 

Owing to the change in the fiscal year, which 
hereafter will begin on February 1, and to the 
law of 1891 (chapter 93), which permits the city 


to issue loans at any time for all the money 
which it proposes to borrow within the debt limit 
during the year, you will be called upon at once 
to consider not only the distribution of the cit/s 
income among the several departments in such 
manner as to maintain their present standard of 
eflSiciency, but also to devise the ways and means 
by which all really necessary public improve- 
ments can be undertaken without increasing 
the net debt of the city beyond the amount 
at which it stood on Jan. 1, 1891. The subject 
should be handled not merely from the stand- 
point of this year's financial possibilities, but as 
an annually recurring proT>lem, not to be solved 
in any one year at the expense of the finances 
of the next. 

I have prepared with some care a table showing 
the amount expended on special appropriations 
for what may be termed permanent* improvements 
during the past five years, the amount estimated 
by the principal departments and myself as proper 
to be raised for such purposes during the next 
five years, the unexpended balances of special 
appropriations now on hand, and an estimate of 
the fresh money needed for these purposes during 
the year 1892. 








~r"sr=!iS3sss3 itaS'si -ST 















The total amount which it will be reasonably 
necessary to expend for permanent improvements 
during the next five years I estimate at $21,181,- 
532.07, an amount larger by about $3,861,970.85 
than the expenditures during the five years just 
passed. Of this sum the unexpended balances now 
on hand amount to $3,101,532.07, including $187,500 
(see Appendix B), which is unavailable for the pur- 
poses to which it is now appropriated, and which 
should be transferred to other and more desirable 
objects. Applying this $187,500 as suggested, the 
amount of fresh money to be provided during the 
next five years is $17,892,500 ; while our resources 
will be something as follows: — 

Amount that can be borrowed without increas- 
ing the net debt of the city above $31,- 
058,496.98 (the amount at which it stood 
Dec. 31, 1890) $14,700,000 

Sales of city property, including the Public 
Library site on Boylston street, school-houses 
to be surrendered, etc. • • . . . 2,150,000 

From the tax levy 1,000,000 


This calculation indicates that there should be 
little difficulty in providing all the money rea- 
sonably required for ordinary improvements during 


the next five years without an increase in the 
net debt of the city. Moneys required under 
the new street-construction law (St. 1891, ch. 
323) are excluded from this computation, as 
these loans are to be repaid by the abutters and 
not by the taxpayers generally, and are to be 
secured by a first lien upon the estates bene- 
fited; and no account has been taken of cer- 
tain extensive street widenings which should be 
undertaken in the immediate future, but the cost 
of which should be defrayed by the adoption of 
new financial methods which will be explained 
more in detail hereafter. 

The desired result can be realized, however, only 
by restricting the use of the city's credit to such 
improvements as are of admitted necessity, by 
borrowing no more in any one year than can be 
expended in the same, by practising a rigid and 
business-like economy in all the departments of 
the City Government, and by efiecting certain 
changes and reforms in the financial policy of the 


Passing to the application of those principles to 
the immediate finances of the current year, I esti- 
mate that we can secure for permanent improve- 



ments in 1892, without an increase in the net 
debt, $3,337,500, as follows : — 

Transfers, as above $187,500 00 

Sales of city property ..... 150,000 00 
Amount that can be borrowed without in- 
creasing the net debt above $31,053,496.98, 3,000,000 00 

Total $3,337,500 00 

This sum exceeds by $196,500 the amount which 
it seems to me necessary to raise during the year, 
according to the table already given. 

These estimates are presented merely as sug- 
gestions of what is possible this year in the 
way of permanent improvements without , increas- 
ing the city debt. They embrace all those im- 
provements demandmg in my judgment immediate 
attention, and contemplate an appropriation of 
$3,337,500, which, added to the $3,101,532.07 avail- 
able from unexpended balances, will make a total 
fund of $6,242,532.07 for expenditure on permanent 
improvements during the year. This sum is 
certainly all that can be profitably spent in the 
course of a single year; the expenditures on 
special appropriations having been $3,304,530.99 
in 1890 and $5,029,607.32 in 1891. 

Authority now exists to borrow a considera^ 




ble part of the f3,000,000 which it seems to 
me should be raised during the year, as fol- 
lows : — 

SIVE OF LOANS UNDER ST. 1891, CH. 828). 

Datb ov Obdeb. 

Nov. 18, 1880' • . . 
Mmj 20, 1801 . . . 
Cot. 26, 1891 . . . 
Oet. 24, 1801 . . . 
Deo. 10, 1891 . . . 
Dee. 24, 1891 . . . 
Deo. 6, 1891 • . . 
Jan. 2, 1802 . . . 


Objbgt of LoAjr. 

Coohltaate Water, Additional Supply, 



Pablic Library 

Commonwealth Avenue 

Dorcbeater Avenue 

L-8treet Bridge 

City Hospital 






Nbbdxd iir 

1892 IN AD- 
dition to 
ON Hand 

January 1. 




That is to say, $1,461,000 of the $3,000,000 
can be issued by executive order without further 
action of the City Council. To issue the re- 
maining $1,539,000 will require the action of the 
City CounciL I would suggest the passage of 
orders authorizing the issue of new loans as fol- 
lows : — 





Cocbitnate Water— Eztenaion of Mains 

Suffolk County Coart-Honse 

Bchool-hotues and Sites 

Public Forum 

Improved Sewerage 

Street Department, Paving Dlvlaion. 
Alleton-etreet Bridge 


Amount to be 

Amount to be 
iMued in 1892.. 

^250,000 00 

$190,000 00 

248,210 09 

150,000 00 

600,000 00 

479,000 OQ. 

100,000 00 

100,000 00 

250,000 00 

160,000 00! 

415,000 00 

415,000 00 

65,000 00 

65,000 00 

$1,818,216 09 

$1,539,000 00. 

These orders should be passed at once, if at 
all, in order that all the loans for the year may 
be issued at one time and in one sum. The best 
price will thus be realized, and the departments 
will be enabled to undertake the work pro- 
vided for without delay. 

The borrowing capacity of the city under the 
debt-limit laws is now |5,208,152 less $972,500 
authorized but not issued; that portion of the 
$1,539,000 to be authorized this year which will 
come within the debt limit is $1,199,000; and 
the city will have left a borrowing capacity of 
$3,036,652 to be drawn against only in case of 
some unforeseen emergency. 


Whatever justification might have been set up 


in the years immediately succeeding the passage 
of the law limiting our taxes for municipal pur- 
poses to $9 on the thousand for a practice to 
which $1,333,4S9.30 of our present funded debt 
is due, there would seem to-day to be no reason 
for its continuance. The present operation of 
the law not only brings in enough revenue for 
the current expenses of the City Government, 
economically administered, but should yield some- 
thing in addition. 


The streets were watered in 1891, partly by 
contractors paid by the householders directly, 
and partly by the Street Department. This com- 
bination seemed to give general satisfaction, ex- 
cept to those citizens who wish to shift the 
expense of laying the dust in front of their 
premises over to the general public; and is, so 
far as I can foresee, the system most likely to 
satisfy the people at large during the coming 

To attempt to defray the entire cost of water- 
ing the streets out of the tax levy would be a 
financial task of great difficulty at the outset; 
and the embarrassment would increase from year 
to year owing to the clamor for extensions of 


the system, until finally we should find ourselves 
burdened with the obligation to water every 
street within the city limits at an annual expen- 
diture of half a million dollars. No such in- 
crease in expenditures will be possible upon the 
present basis of taxation without a relapse to 
the practice of borrowing money for current ex- 

Moreover, the main benefit of street watering 
enures to the individual householder ; and it is 
therefore more just and proper that he, as the 
person chiefly interested, should pay the whole, 
or at least a large part, of the cost of water- 
ing the street in front of his house than that 
the entire expense should fall upon the citizens 
at large. One great error in our municipal 
financiering has been that the cost of services 
which in other large cities are paid for by the 
persons directly benefited has in Boston been 
defrayed out of the tax levy, thus shifting upon 
the community the burden which properly belongs 
to the individual. In my judgment no further 
step should be taken in this direction, and it 
would seem, both on principle and as a matter 
of practical finance, that if the Superintendent of 
Streets is to water the streets and charge the 
expense to the appropriation for his department, 


the department should be reimbursed by assessing 
the whole or a part of the cost upon the estates 
benefited, as provided by the new street-water- 
ing law (St 1891, eh. 179). If it should be 
found impracticable to devise an equitable system 
of assessments under the provisions of this law, 
and suitable amendments cannot be procured, the 
ordinance recently passed by the City Council 
(which became a law while I was prevented by 
illness from giving the matter due consideration) 
should be repealed and the Superintendent of 
Streets directed to continue the method • adopted 
this year. 


At the beginning of the year 1891 there were 
thirty-eight executive departments responsible to 
the Mayor. Four of these — namely, the Depart- 
ments of Sewers, Bridges, Cambridge Bridges, 
and Sanitary Police — were consolidated with the 
Street Department early in the year, and the 
Department for the Inspection of "Wires has been 
placed in charge of the Board of Fire Com- 
missioners; making the nimiber of present Execu- 
tive departments thirty-three, exclusive of the 
Mayor's office. The Board of Ferry Commis- 
sioners has also been abolished and the manage- 


ment of the East Boston ferries placed in charge 
of a single superintendent. 

These changes have met with the undoubted 
approval of the citizens, and the process of 
consolidation should be continued. The execu- 
tive work of the city is still divided among too 
many departments, and much friction and work 
at cross-purposes is the result. A smaller num- 
ber of departments will tend to harmony and 
cooperation between them, to a concentration of 
responsibility, and to economy in estimates and 

Many of the thirty-three departments still exist- 
ing were estabUshed under statute laws, and can- 
not be altered or abolished without the sanction 
of the Legislature. There are some, however, 
which are the creation of the City Council, and 
could with profit to the city, and without appli- 
cation to the General Court, be abolished by the 
present City Government. 

The "Water-Income Department is of recent 
creation. Its work is intimately connected with 
that of the Collector's office, and is to some 
extent duplicated thereby. On the other hand, 
the successful management of the "Water-Supply 
system, which forms a very considerable part of 
our municipal work, depends largely upon a 


thorough and economical collection of the water 
revenues. I am satisfied that the best interests 
of the city require that the work of collecting 
the Cochituate and Mystic revenues should be 
placed in charge of the Water Board. 

The Improved Sewerage works are now being 
constructed by the City Engineer; but both he 
and the Superintendent of Streets are of the opin- 
ion that it should be placed in charge of the lat- 
ter, and managed in connection with the Sewer 
Division of the Street Department. 

The office of City Surveyor was separated from 
that of City Engineer many years ago; for what 
reason I have not been able to discover. The 
work of the department is done partly for the Su- 
perintendent of Streets, partly for the Board of 
Street Commissioners, and occasionally for the 
Law Department. I believe that better results 
would be obtained if this office were again united 
with that of the City Engineer. 

The care of the City Hall was formerly in charge 
of the Superintendent of Public Buildings, but was 
taken away from him some years ago and given 
to the City Messenger. I am informed that this 
change has increased the expense, and I can see 
no reason why the Superintendent of Public Build- 
ings should not have charge of the City Hall as 



well as of other city buildings, I recommend, ac- 
cordingly, that the City Hall be replaced in his 


The keeping of the general city records is 
divided by the State laws and City ordinances 
among the departments of City Clerk, City 
Registrar, Board of Health, and Ancient Records. 
There is a duplication in the collection of certain 
records by the Board of Health and the City 
Registrar. The records of births, marriages, and 
deaths have not been kept to the satisfaction of 
the lawyers and other persons who have occasion 
to consult them; and there is a very general 
demand for a complete reorganization of the work, 
and for the compilation of an extensive system of 
indices similar to that adopted by the Suffolk 
Registry of Deeds. 

I think that, eventually, when there shall be 
sufficient space provided for the purpose in a 
new City Hall, there should be one consolidated 
department of City Records, which should have 
charge of all the work now intrusted to the 
four departments named; and that in the mean- 
time the Department of Ancient Records should 
be consolidated with the office of City Registrar 
and placed in charge of some person competent 


to undertake the work of classification and index- 
ing referred to, with a sufficient annual appro- 
priation to enable him to finish this particular 
work within the next few years. In this manner 
the vital statistics of the city, which have been 
neglected for two centuries, can be put in con- 
venient shape for reference. 

The Legislature should also be requested to 
abrogate those provisions of law which require 
the City Registrar to gather statistics concerning 
the causes of death, which are properly facts 
for the Board of Health, and not for a city 
record office, to collect. 


It is an anomaly that while members of boards 
are appointed for three or five years, the principal 
executive officers of the city are subject to 
annual appointment. The chief heads of depart- 
ments — such as the financial officers of the City 
Government, the Superintendent of Streets, the 
City Engineer, and possibly some others — should 
be appointed for a term of at least three years. 


The relations between the citizens and the Board 
of Police continue to be unsatisfactory. During 



the past year I have been in almost daily receipt 
of oral or written communications complaining of 
one thing or another within the jurisdiction of the 
Board of Police. The complaints are generally of 
violations of city ordinances relating to the use 
of streets. 

While not desiring to suggest that the Board 
has been wilfully negligent of its duties in this 
behalf, it is nevertheless a fact that these com- 
plaints are in the main well founded, and that 
the Mayor, who to the popular mind is respon- 
sible for everything that goes wrong, has no 
control whatever over the department whose duty 
it is to enforce these ordinances. No one is ni 
fact responsible but the Board of Police ; and 
they in turn are responsible to no one. The system 
is radically wrong, and is becoming more and 
more exasperating to the citizens from year to 

"While recognizing to the fullest extent the 
inadvisability of vesting the power of granting 
liquor licenses in the elective officers of the City 
Government or their appointees, I am neverthe- 
less convinced that it will be practically impos- 
sible to keep the streets of the city any cleaner 
than they are at present, or to prevent the daily 
violations of the ordinances relating to their use. 


until the control of the police force of the city 
is returned to the municipal authorities, and that 
force made one of the regular departments of 
the City Government, to be placed in charge of 
some person directly responsible to the Mayor, 
and through him to the people. 


TSo one having occasion to investigate our 
system of finances or to seek information con- 
cerning the management of any of the depart- 
ments can fail to reach the conclusion that the 
manner of keeping the books has been extremely 
faulty. The Auditor's report is made up on one 
plan ; the annual department reports have been 
compiled each upon a different plan, and all dif- 
ferent from that of the City Auditor ; and the 
department estimates again have been made up 
upon a theory different from that which governs 
the compilation of the City Auditor's report and 
from that of the annual reports of the departments 
themselves. The time covered by these three 
series of reports has also been different, — the 
estimates and the Auditor's report being for the 
fiscal year, and the annual department reports for 
the calendar year. In addition to this lack of 


harmony and system, there has been, in some 
departments at least, an apparent attempt to 
conceal the facts by generalizing and mystifying 

This condition of affairs has been remedied in 
great part by the change in the fiscal year from 
May to February, and by the recent ordinance 
providing that the annual department reports 
shall for the future cover the fiscal year from 
February to February, rather than the calendar 
year, as heretofore. In this way all three series 
of reports — the estimates, the department reports, 
and the Auditor's report at the close of the fiscal 
year — will cover the same period of time. 

In addition to these reforms effected by the 
City Council of 1891, efforts have been made by 
executive order to secure a more intelligible and 
uniform system of bookkeeping in the principal 
departments, and to have the estimates and re- 
ports of these departments made up in such 
manner as to disclose the facts that the public 
desire to know, and more in conformity with the 
system of bookkeeping adopted in the Auditor's 
oflSce. It is to be hoped that the department 
and other reports submitted during the present 
year will show the effect of these efforts. 



The Architect's oflSce has been reorganized 
and placed in competent hands, with the result 
that the expenses of the department from May 1, 
1891, to Dec. 31, 1891, have been $17,139.11, 
while the disbursements for construction have 
been $424,092.66. In other words, the cost of 
maintaining the oflBlce since its reorganization 
last May has been four per cent, of the ex- 
penditures for construction, as against ten per 
cent, for the period between May 1, 1889, and 
May 1, 1891; and there is every prospect that 
the percentage for the next twelve months will 
be still less. 


The sale of an estate on Federal street early 
in the year for a sum considerably less than the 
assessed value of the land induced me to look 
into the results of the practice then in vogue of 
selling city property at auction without an upset 
price. I found that from Jan. 1, 1887, to and 
including the date of this sale on Federal street, 
city property valued at $474,522.50 had been 
sold for $346,435.83, a loss of $128,086.67 (or 
27 per cent.) on the assessed valuation. 

It did not seem possible to account for this 



loss of 27 per cent, by reason of the overvalu- 
ations above referred to, and I found it to be 
the general belief that city property did not 
bring what it should when sold at public auc- 
tion. A new system was accordingly adopted, 
and all city property sold since the Federal- 
street sale has been put up for public competi- 
tion, but not at auction. Substantially the method 
followed by the City Treasurer in placing bonds 
upon the market has been followed; and it has 
been found that this method of advertising prop- 
erty, with an upset price stated in the advertise- 
ment, produces good results, all three of the 
estates sold in this manner having brought more 
than the assessed valuation, and in one instance 
almost double. I would respectfully renew my 
recommendation to the last City Council that an 
ordinance be passed providing that all sales of 
city property should be conducted in this manner. 


It is obvious that the question of procuring 
enlarged accommodations for the city departments 
cannot be postponed much longer. I assume 
that the citizens do not wish to have the City 
Hall removed to the Public Garden, or to any 
of the numerous sites in that section of the city 


which have been suggested, but prefer that it 
should remain easy of access to the business and 
professional community. The only alternatives, 
then, are to remodel the present City Hall in 
connection with a new building to be erected on 
the site of the old Court-House, when that shall 
be surrendered, or to secure a site in the im- 
mediate vicinity of the City Hall, and erect an 
entirely new building thereon. 

The result of the best thought that I have 
been able to give to the matter is that to 
make a convenient and fire-proof building out 
of the present City Hall, enlarged as suggested, 
would cost over a million dollars; that when com- 
pleted, although there would probably be room 
enough to accommodate the present needs of the 
city departments, there would be little space, if 
any, to allow for their growth; and that the 
necessity for an entirely new and larger building 
would simply be postponed, to revive after the 
expiration of ten or twenty years. 

In company with the City Architect I have 
looked over all the property in the vicinity of the 
present City Hall, and have reached the conclu- 
sion that by far the most available site for the 
purpose of a new City Hall is the lot bounded 
by Beacon street, Somerset street, Ashburton 


place, and Bowdoin street. This lot contains 
about 90,000 feet, and would allow for the widen- 
ing of the four streets named, and leave a space 
for the erection of a City Hall large enough to 
accommodate the present and future needs of the 
city for generations to come. The assessed value 
of this property, land and buildings, is about half 
a million dollars less than the estimate placed by 
the Assessors upon the land now occupied by the 
City Hall and the old Court-House ; which would 
therefore be reasonably certain to produce as 
much money as would be required to procure the 
property on Beacon street. 

The Commonwealth should be willing to co- 
operate with the city in this project to the extent 
of laying out the strip between Bowdoin and Mt. 
Vernon streets— part of which it now owns — 
as a public square. In the execution of the plan 
the entire crown of the hill could be levelled, 
existing streets widened, and the whole section 
very much improved for public use. 

The City Architect estimates the cost of a build- 
ing covering 50,000 square feet, and so arranged 
as to be capable of extension in the future, at 
$2,000,000. It seems to me that this solution 
of the problem is by far the most economical 
in the long run, and the only one which will 


give to the several departments of, the City 
Government the present and future accommoda- 
tions which they and the public are interested 
in securing ; and I respectfully commend this 
suggestion to the consideration of the City Coun- 
cil. It is not likely that the old Court-House 
will be surrendered to the city before the middle 
or the close of 1893, and if the suggestion of a new 
building on the site named meets with the ap- 
proval of the City Council, steps should be taken 
in the meantime to secure the necessary legisla- 
tion, and to perfect the plans and specifications. 


The work of platting the streets in the out- 
lying sections of the city, authorized by chapter 
323 of the Acts of 1891, has been pushed by 
the Board of Survey with great thoroughness, 
and, so far as I can ascertain, to the satisfaction 
of everybody except those individuals who not 
only wish the privilege of laying out their land 
as they please, regardless of the interests of the 
community as a whole, but expect the city to 
reimburse to them the cost of their own selfish 
plans. Two plats of large areas have already 
been completed, and it is expected that before 
the expiration of a year from the appointment of 



the Board at least one-third of the work laid 
out for them will have been accomplished, thus 
making it probable that the entire work will be 
finished within the three years specified in the 

The operations of the Board of Street Commis- 
sioners are not controlled by the City Council or 
the Mayor, except when they involve the imme- 
diate expenditure of money. The result has been 
the laying out and acceptance, as public highways, 
of miles and miles of streets, designed by private 
individuals for their own personal benefit, without 
regard to the general welfare; and the fact that 
these private ways have been made public streets 
has necessitated in the end an enormous expendi- 
ture of public money, the greater part of which 
can have produced no equivalent public benefit. 

When the act creating the Board of Street 
Commissioners was passed fears were expressed 
ofr the consequences of vesting in this irrespon- 
sible board the arbitrary power to lay out 
streets. These fears have been justified by the 
results ; for a very large part of the money spent 
upon street improvements — amounting in the 
aggregate for damages and construction to over 
$50,000,000 — is directly traceable to the injudi- 
cious use made by the Board of Street Com- 


missioners of the extraordiDaiy powers given them. 
In addition to the enormous sums already spent 
upon street constiniction and improvements, largely 
for the benefit of private individuals, the neces- 
sity of spending equally large sums in the 
future will arise unless something is done to 
control the reckless acceptance of private ways 
as public streets. There are to-day 22.43 miles 
of uncompleted private ways which have been 
accepted by the Board as streets, and which the 
citizens will in the near future be called upon 
to finish at the public expense. 

The creation of the Board of Survey was, un- 
doubtedly, a step in the right direction, and 
when its work is completed the danger from this 
source will in great measure cease ; but in the 
meantime I am convinced that the City Govern- 
ment should have some control over the acts of 
the Board of Street Commissioners, and I recom- 
mend petitioning the Legislature for a law which 
shall make all acts of the Board subject to the 
approval of the Board of Aldermen and Mayor. 
In this way the work of the Street Commissioners 
can be made to harmonize with that of the Board 
of Survey, a result which it has been found im- 
possible to accomplish during the year just passed ; 
and the enormous expenditures ultimately entailed 


upon the city by the power of the Street Commis- 
sioners to convert unfinished private ways into 
public streets will be curtailed if not altogether 


The amount spent for street widenings and 
changes of grade since the incorporation of the 
city has been nearly $40,000,000; and yet no one 
would claim that the citizens to-day enjoy the 
benefit of this expenditure in convenient streets, 
or deny that if the growth of the city is to 

^ be maintained and its prosperity for the future as- 

sured, a radical and extensive system of street 
widenings must be undertaken. It would be use- 
less to expect to defray the great cost of these 
improvements in the manner now provided by law, 
— that is to say, entirely at the expense of the 
public, saving the comparatively small amounts that 
could be realized in betterments, — and it is evi- 

y dent that, unless some new financial methods can 

be devised, the citizens will be obliged to forego 
the benefits of these improvements. 

Such methods are employed in foreign coun- 
tries, where still greater street widenings have 
been undertaken with little or no expense to the 
municipality, by virtue of the power to condemn 


Dot only the property that is to be turned into 
the highway, but also the adjacent and neighbor- 
ing estates which will be benefited by the oper- 
ation. It is understood that a large part of the 
extensive street widenings undertaken in London 
and Paris have in this manner been secured 
without ex}>ense, owing to the fact that the in- 
creased value of the property bounding on the 
new thoroughfare more than equalled the cost of 
that which was turned into it. 

Realizing the necessity for adopting some such 
method for our future street and park improve- 
ments, T recommended consideration of the subject 
in my inaugural of last year; and the Board 
of Aldermen of 1891 authorized me to petition 
the Legislature for an amendment to the consti- 
tution granting, under proper restrictions, to towns 
and cities and their duly constituted officers 
and boards, the power to condemn all the prop- 
erty that may be financially necessary to the 
success of street-widening operations. It is ear- 
nestly to be hoped that the Legislature will see 
the wisdom of this reform ; and I should rec- 
ommend the postponement of all extensive street 
widenings until authority has been obtained to 
conduct them in this manner. With these powers 
vested in the City Government it will be possi- 


ble to open several new and wide thoroughfares 
through the older portions of the city substan- 
tially without cost to the citizens, and to the 
great advantage not only of the people of this 
city, but of all the surrounding towns whose 
inhabitants have occasion to use our streets. It 
is obvious, moreover, that extensive street widen- 
ings and improved bridge connections for street 
and railway travel over the tide waters surround- 
ing the city proper are necessary before rapid 
transit across the city can be secured. The en- 
tire interests of the community, therefore, demand 
the enactment of those laws by which alone these 
improvements can be obtained. 


While it would be useless to hope for any radi- 
cal change at present in the burdensome system 
of taxation which the statutes of the Common- 
wealth and the decisions of the Supreme Judicial 
Court have imposed upon the people, there are 
nevertheless one or two particular reforms which 
should be urged upon the Legislature for immedi- 
ate adoption. Perhaps the fact that the gentleman 
who for many years has been conspicuous before 
the committees of the Legislature as an earnest 
and able advocate of every form of double taxa- 


tion received at the last State election only 1,772 
votes, or about one-half of one per cent, of the 
total vote for Governor, may lead the members 
of the General Court to realize that there is less 
popular interest in the demand for taxing certain 
kinds of property twice over than has been 
represented in the past. 


One of these special reforms is a change in 
the corporation law which will permit towns and 
cities having street railways within their limits 
to tax locally the rails and sleepers maintained 
by these corporations in the public highways. 
The present law permits local taxation of the 
plants of gas and electric light companies, but 
prevents the city from taxing the plant of street- 
railway corporations. The corporations of course 
pay the tax all the same, but they pay it to the 
wrong persons. It is distributed among the va- 
rious cities and towns in proportion to the amount 
of stock held by the citizens thereof; and the 
practical result is that a very large part of the 
tax collected from street-railway companies, and 
deducted from the gross receipts earned in the 
towns and cities where their tracks are operated, 
is diverted from the treasuries of these localities 


and bestowed as an unearned gratuity upon other 
towns and cities. The net gain to the city of 
Boston by abolishing this law and assimilating 
the street-railway corporations to gas and elec- 
tric light companies would, after making due 
allowance for the fact that the city pays over 
one-third of the entire State tax, amount to nearly 
^100,000 this year, and to still more in the future. 


Another change in our tax laws, for which 
special reasons can be alleged apart from the 
general theory, is the exemption of municipal 
bonds from taxation. The total amount realized 
by the city of Boston from the right to include 
in the aggregate taxable property of the city 
the bonds issued by the various cities and towns 
of the Commonwealth is less than $20,000 a 
year; while, on the other hand, the city is obliged, 
by reason of this law, to pay a rate of interest on 
its funded debt higher, by at least one-half of 
one per cent., than it would if its bonds were 
exempt from taxation. That this statement is no 
exaggeration is shown from the fact that other 
cities, whose bonds are totally or partially exempt 
from taxation, are enabled to borrow money at 


three or three and a half per cent, when the city 
of Boston is paying four. Thus the last issue 
of bonds by the city of "New York was a three 
per cent, loan, having 17 years to run, and 
brought something over par; city of Brooklyn 
48, having 20 years to run, have recently been 
sold at a premium of four per cent.; the city of 
Philadelphia has sold its latest issue of 3s, 
having 10 and 30 years to run, at par; and the 
last issue of bonds by the city of Baltimore 
was of three and a half per cents, which were 
placed at par. All these bonds are exempt from 
taxation, at least for municipal purposes, and the 
price that they brought in the market may be 
contrasted with the fact that the last issue of 
bonds by the city of Boston was of 30-year four 
per cents, which commanded a premium of only 
one and a half per cent. It cannot, therefore, be 
doubted that if the bonds of the cities and towns 
situated within the Commonwealth were exempt 
from taxation, the city of Boston would reap 
the benefit of at least one-half of one per cent, 
in the rate of interest on its funded debt. This 
would result in a saving to the city in interest 
of from 115,000 to |20,000 the first year, and 
thereafter increasing in arithmetical ratio, until 
before 20 years have elapsed the saving in the 


annual interest account would amount to several' 
hundred thousand dollars. 

A collateral, but perhaps even more important^ 
result of the exemption of municipal bonds from 
taxation would be that they would furnish a safe 
and profitable investment for the savings of the 
people, and could probably be issued in the form^ 
of popular loans of small amount. I can con^- 
ceive of no greater influence working for a con- 
servative management of our city finances than 
a wide-spread distribution of the city's funded 
debt among its own citizens. 

It is earnestly to be hoped that the Legislature 
will grant the petition of the last City Govern- 
ment for an amendment to our tax laws which 
shall permit us to reap the great benefits of an 
exemption of municipal bonds from taxation. 


It cannot be too frequently brought to the 
attention of our citizens that the chief reason for 
the inordinately heavy taxes paid by them in com- 
parison with the residents of other large cities in 
this country is to be found in the fact that a 
large part of the municipal work, which in other 
cities is reimbursed to the municipality by means 


of assessments levied upon the individuals immedi- 
ately benefited, is in Boston paid out of the gen- 
eral tax levy ; and in the further fact that 
innumerable special privileges are given away in 
Boston, which in other places are made the sources 
of considerable revenue. 

The cost of furnishing householders and builders 
with sewers, water-pipes, sidewalks, and other ac- 
commodations in the streets, which in most of the 
other large cities in the country is borne — in some 
cases altogether, and in other cases in great part — 
by the individuals benefited, is defrayed in Boston 
almost entirely out of the tax levy. Thus, during 
the five fiscal years ending April 30, 1891, there 
was paid out in damages for extending and widen- 
ing streets and changing their grade, $1,593,153.05, 
while the amount received in betterments was only 
f 131,177.34, or about eight per cent, of the outlay. 
The total expenditures for sewer construction and 
repairs during this period amounted to $3,904,167.31, 
while the amount received in sewer assessments 
was only $402,708.67, or about ten per cent, of 
the cost to the city; and under the operation of the 
present sewer-assessment law the percentage is 
rapidly falling. The amount paid for street con- 
struction and repairs during the same period was 
$5,052,367.29, while the amount received in assess- 




ments was only $84,767.68, or about one and a half 
per cent. The consumers of water have profited 
at the expense of the citizens at large to the 
extent of $2,332,969.17 collected of the various 
city departments since 1853 in special charges 
which have been made good out of the general tax 
levy; to the extent of about $230,000 deducted 
from the water bills in 1886, 1890, and 1891; by 
several reductions in the schedule and meter rates 
during the past ten years ; by the practice of putting 
in house connections without charge; by expensive 
extensions for fire purposes from which no revenue 
whatever is derived; and by about $2,000,000 ex- 
pended in ordinary pipe extensions; all of which 
work has been charged to construction and paid 
for by loans rather than taken, as a more correct 
financial policy would have dictated, from the in- 
come of the department. 

These figures explain more plainly than any 
general assertion why the net debt of the city has 
increased so fast, and prepare us for the figures 
of the United States census of 1890, showing a 
greater annual per capita expenditure for the 
city of Boston than for any other large city in 
the country. In Baltimore the rate was only 
$17.91, in Brooklyn $20.88, in Chicago $16.73, in 
Cincinnati $21.74, in Philadelphia $18.95, in St. 


Louis $13.74, and in San Francisco f 18.86 ; while 
in Boston it was $35.94. 

There can be no question that the burden of 
taxation is greater in Boston than in any of the 
other chief cities of this country, and probably 
greater than in any other large community in 

The remedy is not far to seek : it consists 
in restricting the amount of work done for the 
benefit of individuals at the expense of the citi- 
zens at large, and charging to the former their 
just proportion of the cost. 


The Legislature of 1891 refrained from passing 
any laws against the expressed opposition of the 
City Government, and enacted an unusually large 
number of measures at the request of the City 
Council. It is to be hoped that the action of the 
Legislature of 1892 towards the city will be con- 
trolled by the same desire to interfere with our 
local affairs only when such interference is gener- 
ally demanded, and on the other hand to grant all 
reasonable requests preferred by the municipal 
authorities. It is pleasant to be able to recognize 
a growing sentiment at the State House and else- 
where in favor of increasing the limited control 


over its own affairs now enjoyed by the city of 
Boston ; and it is to be hoped that not many 
years will elapse before the city will secure those 
extensive powers of self-government which have 
been so profitably exercised in foreign cities. r 

The needs of the city and its surrounding 
towns, considered in their metropolitan relations, 
would seem to be a fit subject for State legislation 
so long as the metropolitan area is divided into 
difierent political communities; and the theory that 
if the power of the Commonwealth is invoked to 
interfere in the internal finances of the city for 
the benefit of other towns there exists a correla- 
tive obligation to help the city and these towns 
by the use of the credit of the State, appears to 
be gaining ground. The act creating the Metro- 
politan Sewerage Commissioners is an illustration 
of the proper exercise of the right of the Com- 
monwealth to interfere in local affairs and, in 
consideration of such interference, to loan its 
credit to the several communities on which the 
financial burden of the measure falls. 

Another illustration is to be found in the laws 
passed in 1891 creating special commissions for 
the investigation of the problems growing out 
of the need in Boston and vicinity of increased 
transportation facilities, and out of the desirability 


of improving the Charles-river basin for the 

benefit of the cities and towns bordering thereon. 

A further application of this principle would 

in my judgment be the creation of a Metropolitan 

Park Commission, with authority to secure for 

. park purposes, while there is yet time, various 

desirable tracts of land in the vicinity of the 

h city. 


The recount of votes cast at the last munici- 
pal election has disclosed errors in counting which 
if not thoroughly investigated and corrected will 
tend to discredit the Australian ballot system 
and to retard the general adoption of what has 
seemed to be one of the greatest electoral re- 
forms of modem times. 

There was no formal recount of votes for Mayor ; 
but the gentlemen engaged in recounting the votes 
for School Committee have publicly stated that they 
examined the votes for Mayor in two precincts, 
and that in both the vote had been correctly 
counted, but incorrectly tabulated, so that one 
candidate had been given 50 votes more and the 
other 50 votes less than they were respectively 
entitled to; making a net error for the two pre- 
cincts of 200 votes. I am unwilling to believe 


that these errors were due to anything but care- 
lessness; but it is difficult to avoid the conclusion 
that if an error of 200 votes is discovered in two 
precincts out of 205, there must have been many 
more in the remaining precincts; and that in a 
close contest little reliance could be placed on 
the ward • returns. 

It has also been publicly stated by these gentle- 
men that the returns by the ward officers for School 
Committee were found to be correct in only 8 per 
cent, of the precincts. 

These statements demand immediate and serious 
attention, and can only be verified by a complete 
examination of all the ballots cast. Members of 
the City Council or the Legislature can hardly be 
expected to undertake this great labor, even if 
permitted by law to do so; but there is a volun- 
tary and non-partisan organization, known as 
the ^^ Ballot Act League,'^ that might perhaps 
be willing to undertake the work if given au- 

I recommend to your consideration the expedi- 
ency of requesting the Legislature to permit the 
members of the Ballot Act League, or such other 
organization ^or committee as may seem to you 
preferable, to receive and examine all the ballots 
cast at the recent city election, and make a full 


report thereon, with such suggestions for amend- 
ing the law as shall seem to them appropriate. 
One of the collateral consequences of the par- 
ticular form of the Australian ballot adopted in 
Massachusetts is the encouragement afforded to 
careless, inaccurate, and partial voting, especially 
for the minor offices. That this is an evil 
threatening to make a lottery out of an election 
to an office for which there are many candidates, 
and thus entirely to defeat the popular will, can 
hardly be denied; but the remedy is difficult to 
suggest, and one object to be gained by a careful 
examination of the ballots cast at the last city 
election might well be the discovery of the exact 
causes of the evil, and the best means to mini- 
mize it. ^ 



In conclusion, gentlemen, let me express the 
hope that the relations between the legislative and 
executive branches of the City Government of 1892 
will be as friendly and mutually helpful as in the 
year just past. 

Let me remind my party associates in the City 
Council that the practice of making party nomi- 
nations for municipal office, however objectionable 
from certain standpoints, brings, or should bring, 


with it the compensating advantage of a lively and 
never-absent sense of party responsibility. To the 
extent that questions of municipal policy can be 
said to have been considered at the. last city elec- 
tion, the verdict of the people on December 15th 
can be interpreted only as a demand that the city 
should live within its income, that there should be 
no increase in its net indebtedness, and that its 
money should be appropriated with a view to the 
general welfare rather than to the claims of special 
sections or of special interests; and you and I are 
in honor bound to permit no departure from this 
policy except in some great and unforeseen emer- 

To the members of the City Council generally, 
let me say that they will find that not one-tenth 
of one per cent, of the questions that will come 
before tliem for decision involve political or par- 
tisan considerations ; and there should accord- 
ingly be no difficulty in legislating for the city in 
the same non-partisan spirit that inspired their 

Let us all remember that, whether elected by 
wards, by districts, or by the citizens at large, our 
chief duty, as officers of the municipal corpora- 
tion, is to administer the government in such man- 
ner as to promote the best interests of the city as 


a whole; let us not mistake the clamor of those 
special and selfish interests that besiege the City 
Hall for the voice of the people; let us be ever 
mindful that the wholesome light of public criti- 
cism will shine on all our acts; and let us merit 
the confidence of the people by furnishing a clean, 
economical, and progressive administration of their 
municipal affairs in 1892. 




ciTT AMD comrrr debt. 

GroBS funded debt, Dec. 81, 1890 . . • $55,440,861 06 
Add funded debt issued in 1891 . . . 2,716,500 00 

958,156,861 06 
Deduct funded debt paid in 1891 . . . 1,914,115 16 

Gross debt, Dec. 81, 1891 . • • . $56,242,745 90 
Sinking-Funds, Dec. 81, 1890 . $24,888,140 14 
Receipts during 1891 . . 8,084,677 90 

$27,422,818 04 
Payments during 1891 . . 1,908,886 46 

$25,518,981 58 
Bonds and mortgages, the pay- 
ments of which are pledged 
to the payment of debt . . 20,405 98 

Total redemption means, Dec. 81, 1891 . 25,589,887 56 

Net debt, Dec. 81, 1891 .... $80,708,858 84 


Gross debt, Dec. 31, 1891 .... $56,242,745 90 
Gross debt, Deo. 81, 1890 .... 55,440,361 06 

Increase $802,384 84 

Net debt, Dec. 31, 1890 $31,053,496 98 

Net debt, Dec. 31, 1891 30,703,358 34 

Decrease $350,138 64 

City debt, indading balance of debts assumed 

by acts of annexation $36,057,971 92 

Ck>unty debt 3,212,000 00 

Cochitaate water debt 16,423,773 98 

Mystic water debt 549,000 00 

$56,242,745 90 

At the present time the assnmed debts (included in above) 
remaining unpaid are on account of 

Charlestown city 

• • • . 

$182,000 00 

bearing 6% 

Mystic water . 

$148,000 00 

" 6% 

it C( 

108,000 00 

" 5% 


it (4 

18,000 00 

" i% 

<« <i 

240,000 00 

" H% 


ii C4 


35,000 00 

549,000 00 

" Hfc 

$731,000 00 



Loans Authobized bt Speoial Statutes Outside of Debt 


looll • 








271 > 





Pablio Park CoDstniotl<»i . . . 

Bollolk Oovnty Oonrt-HoaM • 

Haryard Bridge 

Public Park Landa 

Sewer, Tremont at. ••••.. 

Stony Brook Improyement . . 

pQbllc Park Landa 

New Library Building • • . . 

W. Oheeter-park Bxtanalon • . 

Congresa-at. and Oliyer-at. Ez- 
tenaion • 

Improyed Sewerage 

PnbUc Parka, Oharleatown . . 


New Library Building . . • • 

Laying Out and Oonatraetlon of 


1 2,500,000 
* 76,000 


Bate of 

*500,000 00 
600,000 00 

200,000 00 

• 8,500,000 00 
« 1,000,000 00 

June 21, 1886 . 
Mar. 21, 1887 . 
May 18, 1887. . 
May 26,1887. . 
June U, 1887. 
June 16, 1887 . 
May 28, 1888. . 
Mar. 1, 1880 . . 
April 12, 1880. 

April 26, 1888. 

May 0,1880 . . 

May 5 and ) 
June28, 180O ( 

May 7, 1801 . . 

May 11, 1801. 


$2,600,000 00 

2,400,000 00 

250,000 00 

400,000 00 

500,000 00 

600,000 00 

1,000,000 00 

600,000 00 
200,000 00 
700,000 00 

>In addition to ooet of land : $2,400,000 of thla amount already approved by City Couneil 
and leaned. 

sNeyer approved by City OounoiL 

•Entire loan authoriied by City Couneil; only $700,000 laaued. 

« Authorized by City Council, but not yet laaued. 

■Not exceeding $1,000,000 each year— debt laaued in 1801 ($50,000) inaide of debt limit; 
debt laaued hereafter will be outoide of debt limit— $500,000 (including $50,000 already 
laaued) authorised by City CoundL 





1822 (town debt) $100,000 00 

1856-7 . . . $431,900 00 

1822-8 . . , 

3,550 00 

1857-8 , 

1,168,400 00 

1823-4 . . . 

103,500 00 

1858-9 , 

1,232,950 00 

1824-5 . . , 

283,257 75 

1859-60 , 

735,800 00 


1825-6 . . , 

318,685 32 

1860^1 , 

992,700 00 


1826-7 . . . 

873,475 00 

1862-8 , 

1,604,850 00 

1827-8 . . . 

181,000 00 

1863-4 . 

850,000 00 

1828-9 . . . 

147,250 00 

1864-5 , 

639,709 80 

1829-80 . . , 

295,480 75 

1865-6 . 

712,150 00 

1830-1 . . , 

281,000 00 


. 1,499,000 00 

1831-2 . . , 

199,743 18 


1,037,175 00 

1832-8 . . , 

466,592 53 


. 2,937,000 00 

1833-4 . . , 

593,044 00 


531,500 00 

1834-5 . . , 

744,626 69 


. 3,561,500 00 

1885-6 . . . 



5,238,000 00 


1836-7 . . , 

359,804 65 


2,981,000 00 


1837-8 . . . 

217,300 00 


, 7,255,176 65 

1838-9 . . , 

283,200 00 


, 4,478,600 00 

1839-40 . . , 

478,332 56 


2,206,200 00 

1840-1 . . . 

345,000 00 


. 8,533,300 00 

1841-2 . • , 

» • • • • 


667,000 00 

1842-3 . . . 

• • • • 


1,849,000 00 

1843-4 . . , 

» •  • • 


1,890,000 00 

1844-5 . . , 

11,566 62 


2,701,000 00 

1845-6 . . , 

109,653 16 


123,000 00 

1846-7 . . . 

297,860 82 


. 2,078,500 00 

1847-8 . . , 

1,419,688 39 


. 8,278,500 00 

1848-9 . . , 

1,085,367 51 



1,837,500 00 


1849-50 . . . 

528,371 23 


1,742,700 00 

1850-1 . . , 

1,195,285 00 


. 8,838,800 00 

1851-2 . . . 

1,180,513 05 


. 8,324,700 00 

1852-3 . . , 

2,044,711 11 


1,529,300 00 

1853-4 . . , 

944,118 00 


. 3,784,000 00 

1854-5 • . < 

306,500 00 


. 5,462,000 00 

1855-6 . . . 

158,100 00 


. 2,716,500 00 





1868, — Boxbury 

• • a 

$991,456 00 

1870. — Dorchester . 

• • • • 

866,200 00 

1874. — Charlestown . 

. $2,780,849 46 


708,690 60 

West Roxbury - 

520,000 00 

8,958,940 06 

(E. db 0. E.) 

$5,816,596 06 


April 80, 1822 

» 1828 

- 1824 

•< 1836 

•• 1826 

«• 1827 

« 1828 

•• 1829 

" 1830 

" 1831 

*• 1882 

<« 1883 

<« 1834 

•• 1835 

«• 1886 

" 1837 

<• 1888 

'• 1838 

" 1840 

•• 1841 

Funded Debt. 

$100,000 00 

108,660 00 

207,060 00 

806,878 86 

864,800 82 

1,011,776 00 

940,860 00 

911,860 00 

801,930 76 

880,830 76 

817,128 96 

940,868 28 

1,078,068 28 

1,147,898 97 

1,264,400 00 

1,407,200 00 

1,491,400 00 

1,606,600 00 

1,696,282 66 

1,668,800 00 


$8,267 27 
8,264 61 

li6,980 98 
299,096 88 
279A24 86 
267,606 76 
228,028 80 
284,096 69 
176,784 76 
168,094 70 
168,686 46 
102,075 66 
182,246 66 
217,966 46 
97,486 60 
in,489 81 
90,849 66 


Fondod Debt. 

$100,282 T8 
208,796 80 

218,810 80 

712,678 62 

670,226 U 

644,844 24 

668,902 46 

646,286 06 

641,889 18 

772,268 68 


1,046,8^8 42 

1,082,154 44 

1,279,244 66 

1,808,968 40 

1,602,068 41 

1,026,798 26 

1,678,450 44 



Funded Debt Statement. — Continued. 

April 90, 1848 

« IMS 

<• 1844 

'< 1846 

*• 1848 

«• 1847 

'• 1848 

« 1849 

•• 1860 

« 1851 

*• 1852 

•* 1853 

«< 1854 

«« 1855 

Deo* 81, 1855 

« 1850 

« 1857 

M 1858 

•• 1859 

« 1860 

•* 1881 

" 1862 

•* 1868 

- 1864 

** 1865 

*• 18G6 

«• 1867 . 

*• 1868 

<• 1860 

*« 1870 

" 187X 

" 1872 

•« 1878 

Funded Debt. 

$1,594,700 00 

1,518,700 00 

1,428,800 00 

1,168,266 62 

1,158,718 16 

1,296,626 96 

8,468,606 87 

6,884,846 54 

6,196,144 86 

6,801,641 36 

7,110,670 70 

7,869,435 66 

7,799,855 82 

7,161,140 77 

7,195,649 77 

7,110,249 77 

7,967,499 77 

9,163,049 77 

9,219,599 n 

9,236,209 77 

9,149,409 77 

10,892,207 77 

10,103,782 77 

11,380,282 77 

11,686,875 91 

12,845,375 91 

13,638,850 91 

16,516,849 01 

16,607,600 91 

28,908,860 91 

27,865,916 80 

29,718,677 91 

86,627,293 45 


$88,980 79 

184,889 81 

802,149 00 

878,400 46 

717,610 79 

800,977 82 

478,218 28 

888,896 02 

810,250 40 

478,684 98 

489,066 22 

872,674 16 

1,411,868 00 

1,042,977 90 

1,172,846 26 

l,161,4n 83 

1,238,862 82 

1,884,415 14 

1,774,272 97 

1,192,435 48 

1,222,058 94 

1,028,027 18 

1,307,078 27 

1,597,034 69 

2,065,776 61 

8,868,626 00 

4,609,280 78 

6,618,809 76 

7,621,814 66 

9,779,442 67 

11,770,162 86 

13,552,249 88 

14,860,895 82 


Funded Debt. 

$1,505,769 21 

1,384,310 00 

1,121,660 91 

784,866 17 

436,108 37 

495,649 16 

2,974,893 09 

4,946,460 62 

6,884,884 95 

6,827,906 87 

6,021,614 48 

6,986,761 61 

6,887,997 82 

0,108471 67 

6,022,803 61 

6,698,771 92 

6,783,686 96 

7,898,684 63 

7,446,826 80 

8,048,864 29 

7,927,446 88 

9,364,180 69 

8,886,654 50 

0,788,108 08 

9,620,600 40 

0,476,840 01 

8,884,670 18 

10,808,640 16 

9,086,686 86 

14,128,008 24 

16,096,764 46 

16,166,428 68 

21,176,898 18 



FaKDED Debt Statement. — Concluded. 

Boo. 81, 1874 

" 1876 

«« 1876 

«• 1877 

•• 1878 

" 1879 

«. 1880 

'• 1881 

«• 1882 

» 1888 

** 1884 

«• 1886 

" 1888 

•• 1887 

*' 1888 

« 1880 

" 1800 

" 1891 

B. ft O. S. 

Funded Debt. 

$48,474,841 96 
48,886,682 24 
44,968,822 80 
48,864,444 06 
41,809,688 81 
48,022,816 20 
41,103,760 60 
40,018,698 02 
41,106,677 88 
42,644,128 96 
42,981,984 91 
48,416,946 84 
46,887,887 86 
48,682,428 68 
48,676,609 29 
61,186,741 09 
66,440,861 06 
66,242,746 90 


$16,661,906 78 
16^1,626 60 
16,681,789 84 
16,498,979 12 
16,626,411 89 
16,926,068 16 
14,446,294 19 
16,nO,661 42 
16,724,662 86 
17,282,488 44 
18,216,870 64 
18,716,981 66 
19,988,492 89 
21,054,840 11 
21,726,667 80 
22,863,963 08 
24,886,864 08 
26,689,887 66 

Fnnded Debt. 

$27,812,986 28 
27,605,006 74 
28,277,082 96 
26,866,464 94 
26,184,in 42 
26,097,788 05 
26,668,466 41 
24,248,046 60 
24,881,026 Oa 
26,811,686 62 
24,766,064 27 
24,700,014 29 
26,864,896 47 
27,627,688 47 
26,860,901 99 
28,321,788 06 
81,068,406 98 
80,708,868 34 

Jaues H. Dodge, 

City Auditor. 




Assessors' Office, Cmr Hall, 

Boston, Jan. 1, 1892. 
Hon. Nathan Matthews, Jb., 

Mayor of the City of Boston: 
In conformity with the provisions of the Revised Ordi- 
nances, we herewith transmit a statement of the Assessors' 
valuation for the preceding five years, and of the abatements 
thereon allowed previous to the thirty-first day of December 
last. Also the average of such valuations reduced by such 


AiMMon* ValuatloiM. 

Ab«tem«iiU to Deo. 81 

1887 . 

. $748,168,217 41 


1888 . 

765,355,048 89 


1889 . 

795,941,043 71 


1890 . 

822,456,800 00 


1891 . 

855,409,914 62 



. $3,987,331,024 13 


Less abatem 

ents, 37,150,300 00 

$3,950,180,724 13 

Divided by 5, gives $790,036,144.00 average Assessors' valu- 
ation for the past five years. 

Respectfully submitted, 

For the Board of Assessors, 

Joshua S. Duncklee, 




CoLLEcnNa Departmekt, Citt Hall, 

Boston, Jan. 1, 1892. 
HoK. Nathan Matthews, Jr., 

Mayor of the City of Boston : 

Sir: The assessments committed to the Collector for the 
financial year, beginning May 1, 1891, not including Cochitu- 
ate and Mystic water-rates, amount to $11,678,826.08. 
Of this amount there has been to Dec. 81, 1891, 
$9,683,521.22 collected; $63,629.05 abated; and $1,931,675.81 
remains uncollected. This includes the State, City, and 
County taxes, $10,860,874.76, of which $9,030,534.35 has 
been collected, $61,089.22 abated; leaving $1,769,251.19 un- 
paid, and the Bank tax, $839,790.00, of which $827,694 
has been paid and $12,096 unpaid. 

The Cochituate water-rates assessed on first of January, 
1891, were $1,566,111.30. There has been paid of these 
rates $1,286,423.43; abated, $111,574.84; leaving $168,113.03 

The Mystic water<«rates for the same tidie stand as follows: 
Assessed, $357,097.94 ; paid, $320,066.15; abated, $34,534.23; 
unpaid, $2,497.56. 

There has also been received of the Cochituate rates for 1892, 

The total receipts from all sources from May 1, 1891, to 
Dec. 31, 1891, inclusive, amount to $13,509,798.51. 

A general summary of the accounts shows that the balance 
of bills and assessments outstanding 


Jan. 1,1891, were $2,752,661 63 

The assessments from Jan. 1, 1891, to Dec. 

81, 1891 14,131,686 85 

Cash deposits, Jan. 1, 1891, to Dec. 31, 1891, 2,729,734 89 

Total amount charged to Collector . . $19,614,082 87 

The Collector is credited with abatements • $411,148 86 

Cash paid City Treasurer .... 16,747,607 67 

Balance uncollected 2,455,326 34 

$19,614,082 87 

The following statement shows the amounts of the Assess- 
ors' warrants for two years: — 

1890-91 $10,996,923 15 

1891-92 10,860,874 76 

and the collections, abatements, and outstanding thereon to 
December 31st of the respective years : — 

1890-91. Collected . . , $8,980,135 32 or 81.7% 
Abated . . . 70,698 81 " .6% 

Uncollected . . 1,946,089 02 *' 17.7% 

$10,996,923 15 

1891-92. Collected . . . $9,030,534 35 or 83.1% 
Abated . . . 61,089 22 '< .6% 

Uncollected . . 1,769,251 19 '' 16.3% 

$10,860,874 76 


James W. Riceeb, 

Gity CoUedar. 





Date of Order. 


Inclnded iii 
Debt limit. 

Outdde Debt 

Dec. 81. 1887 . . . 

Public Park Conttmotion ..... 

$600,000 00 

Hay 20, 1891 .. . 
aCarohl8,1889 . . . 
Nov. IS. 1889 , , . 

•( «( «i • . , 

700,000 00 

New Pabllo Llbrarv 

189,000 00 

Additional HqpdIt of Water .... 

187,600 00 

Jane 27, 1891 . . . 

Oct. 26,1891 . . . 

April 90 and May 
16, 1891 

Kay 20, 1801 . . . 

Jan. 27, 1801 . . . 

ICrftimAlnTi nf MAlna ..... .... 

100,000 00 

fiewera ............... 

$80,000 00 

600,000 00 
60,000 00 

177,000 00 
288,000 00 

School-honaea and Sitea 

Street Constmetion Act 

Miaoellaneoua : ~- 

Btony Brook $38,000 00 

School-bouaes . . . • 112,000 00 
BeweiB 82,000 00 

To make good defldendea in de- 
partment approprlationa for 1800- 

Street Department • $188,000 00 

Police Department . 76,600 00 

Sanitary Police De- 
partment 24,600 00 


$1,090,000 00 

$1,626,600 00 
1,090,000 00 

$2,716,600 00 



Special appropriations that should be transferred are the 
following : — 

$35)500 — Remainder of an appropriation in 1891 (originally 

$50,000) for the extension of Canseway street. 
The estimated cost of this extension is $95,000. 

85,000 — Remainder of an appropriation in 1891 (originally 
$41,000) for the extension of Talbot avenue. 
The original appropriation was insufficient in the 
opinion of the Board of Street Commissioners. 

60,000 — Appropriated in 1889 and 1890 for a bnilding for 
the Fire Department at the North End. No site 
has been found within the appropriation. 

40,000 — Appropriated in 1889 and 1890 for a stable in the 
West End for the Street Department. In- 

12,000 — Appropriated in 1891 for a city bnilding on Dor- 
chester street. The School Committee and Fire 
Department, both of which are interested in 
this appropriation, have been unable to agree 
upon its use. 


These appropriations are not at present available for the 
reasons stated, and the amounts should be utilized by transfer 
to more necessary objects that can be undertaken at once. 






CiTT OF Boston, 
Board of Commissioners of Sinking-Funds, 

CiTT Hall, Jan. 4, 1892. 

Hon. Nathan Matthews, Jr., 

Mayor of the Gity of Boston: 
Sib: Iq accordance with the provisions of Chap. 93, 
\ Acts of 1891, it is estimated that the amount which the 

city will be able to borrow daring the present municipal 
year within the debt limit established by law, is $4,235,000 
as per schedule annexed. 

A. Davis Weld, 
Joseph H. Gray, 
Hbnrt R. Reed, 
Samuel Johnson, 
Board of Gommisaionera of SinJcing-Funds. 

Alfred T. Turner, 
,^ CUy Treasurer. 

James H. Dodge, 

City Auditor. 

Right to borrow Jan. 1, 1892 .... $3,435,152 
April 1, 1892. Interest on investments . . 180,000 

Carried forward^ $3,615,152 



Brought forward^ 


July 1, 1892. 

Interest on investments 


Oct. 1, " 

(( (C (( 


Oct. 1, " 

Debt paid from appropriation . 


Nov. 30, " 

Appropriation for debt 


Jan. 1, 1893. 

Interest on investments 

87,000 i 

Jan. 1, " 

Sterling debt redeemed 


Jan. 1, *' 

Interest on bank deposits 


Less loans authorized bat not negotiated 










JANUARY 2, 1893. 


Rockwell and Churchill, Qty Printers. 



s " ~L ~ <'■ : 








JANUARY 2, 1893. 

^W, 1«30. ^^ 

Rockwell ANn Churchill, City Printers. 



In Board of Aldermen, 

January 2, 1893. 

Orderedy That His Honor the Mayor be requested to 
fiimish the City Council with a copy of his inaugural 
address for publication. 

Passed. Sent down for concurrence. January 2, came 

up concurred. 

A true copy. 


J. M. Galvin, 

Qity Clerk. 


Gentlemen of the City Council: 

The first duty of the City Government of 1893 
will be the consideration of the 


for the fiscal year 1893-94, the estimates for which 
are herewith submitted. The interest and sinMng- 
fund requirements for the year are estimated at 
$2,910,219, which is $240,201 less than for the 
fiscal year now closing. The amount available for 
department expenditures is $10,469,408, a sum 
which, according to the experience of the last two 
years, should be suficient to enable the city to 
live within its income. 

The cost of lighting the public streets has become 
excessive. Investigations by the City Engineer and 
other data at hand satisfy me that a material reduc- 
tion should be made in the prices now paid by 
the city for gas and electricity. The contracts 
with the various gas companies expire this year, 
and we have no contract with the principal electric 
light company. An opportunity is therefore pre- 
sented for a readjustment of the charges for street 


lighting, and I have estimated the expenditures of 
the Lamp Department upon the basis of the pro- 
posed reductions. 

I am also convinced that economies can be effected 
in the expenditures for printing, messenger depart- 
ment, public grounds, public celebrations, and for 
repairs and alterations on the school-houses and 
other public buildings. Money for street widenings 
may properly be included in a loan order. 

With these exceptions I have in the case of every 
department recommended an appropriation at least 
equal to the amount that will be expended during 
the current fiscal year, and an increase over the 
appropriations of 1892-93 for the departments of 
schools, parks, police, fire, streets, health, public in- 
stitutions, registry, and assessors. 

The ^ reserve fimd " has been found most useful, 
and should be made sufficient to cover all possible 
expenses which the presence of cholera may render 

The city revenues could be increased materially 
by following the practice of other cities and making 
a moderate charge for the thousands of miscellaneous 
street privileges now given away for nothing. Any 
attempt to procure the right to levy a special tax 
for the use of the streets by the various corporations 
having vested rights therein and performing public 
services would probably fail this year, as in the past ; 
but a considerable revenue might be derived from 


fees for the street privileges granted every week to 
individuals and corporations for their sole and spe- 
cial benefit ; and the large corporations using the 
streets without charge for commercial purposes 
should make liberal allowances in the prices charged 
the city for the commodities they manufacture. 


The next duty of the new City Government will 
be to pass a loan bill, which, under the law, must be 
restricted to permanent improvements. In discrim- 
inating between the various projects of this character 
which will be brought to our attention, we should 
constantly remember that it is better to concentrate 
expenditure upon improvements of general benefit to 
the entire community, or to the people of an entire 
section of it, than to fritter away the public funds 
upon purely local objects. The amount of money 
which can be appropriated being limited by law, 
the question in every case is not merely whether a 
particular improvement is in itself desirable, but 
whether it is the most desirable of those suggested. 

The present borrowing capacity of the city is 

I shall refrain from specifying, except in a general 

way, the objects which the City Council should bear 

in mind in preparing the loan order. From $200,000 

' to $300,000 will be required for new school-houses 

and sites ; about $100,000 for the completion of the 


new hospitals at Long Island, and for a separate 
establishment for women ; and about $400,000 for 
additions to the City Hospital. From $500,000 to 
$1,000,000 could well be devoted to street con- 
struction, distributed so as to furnish stone pave- 
ments for the business streets, asphalt pavements 
for the residential sections, and macadamized streets 
for the outlying wards. 

_ * 

The rest of the amount which can prudently be 
borrowed during the year, should, in my judgment, 
be devoted chiefly to the opening of new thorough- 
fares for the accommodation of trade and travel in 
the business centre of the city, and thence in radiat- 
ing lines to the various suburban sections. The most 
important street widenings for the business section 
are the new street desired for teaming purposes, from 
Haymarket square to Atlantic avenue, along the line 
of Cross and Commercial streets, and the proposed 
widening of Harrison avenue and Chauncy street. 

The chief need of the outlying wards is for broad 
and direct thoroughfares leading into the heart of 
the city. Such an avenue is now being constructed 
for Brighton; but the Commonwealth-avenue im- 
provement might well be supplemented by widening 
Brighton avenue from its junction with the former 
street to Cambridge street and possibly beyond. 
That part of the city lying to the west of the 
Back Bay is fairly well provided for by Beacon 
street and the Riverway; but a fiirther means of 


communication with the business centre should be 
furnished by widening Huntington avenue and 
Tremont street from Gainsborough street to the 
Brookline line. 

That section of the city which stands most in 
need of better and straighter connections with the 
City Proper is Roxbury and the wards lying to 
the south of it. I earnestly commend to your 
attention the expediency of laying out a new 
street, which shall connect, more directly than is 
at present possible, Roxbury and the adjacent ter- 
ritory with the City Proper. The new avenue to 
South Boston, over Congress street and the L-street 
bridge, should be widened and opened for travel 
as soon as possible. 

The proper laying out of the remoter sections of 
the city is being worked out by the Board of Survey. 

These improvements in our street lines will do 
much to facilitate street travel and transportation, 
to increase real-estate values, and to place Boston 
on a par with the other principal cities of the 
country, in all of which the streets have been laid 
out by public authorities upon comprehensive 

Loans should also be authorized outside the 
debt limit for the completion of the Sudbury-river 
basins, and for the work of street, sewer, and 
sidewalk building. 



The net debt of the city on Dec. 31, 1892, was 
$30,539,289.97, or |164,068.37 less than on Dec. 31, 
1891, and $514,207.01 less than on Dec. 31, 1890. 
There is now in the city treasury $881,240.53 de- 
rived from loans and appropriated for permanent 
imprpvements. The additions to the sinking funds 
will amount to about $2,800,000 during the year. It 
will therefore be possible to spend for permanent im- 
provements nearly $4,000,000 without increasing the 
net debt of the city. Experience has shown that it 
is difftcult to expend economically and judiciously 
for permanent improvements more than this amount 
in a single year. If, however, an accelerated rate of 
progress upon our public works should result in 
greater expenditures, the excess would be met by 
covering into the sinking funds the proceeds of sales 
of city property which will be available during the 


The main concern of the people of Boston and 
their representatives in this City Government 
should be the preparation of our city to re- 
ceive its proper share of the increase of trade and 
population which the future will surely bring to the 
cities on the Atlantic seaboard, but which is in 
danger of being diverted to our competitors unless 


we proceed at once to lay the foundation for a great 
metropolitan city. 

The first thing to be secured is rapid transit 
in its various forms. The lack of adequate 
facilities for travel in and out of Boston is a 
serious drawback to the prosperity of the city in 
its commercial and social life. The people have 
had time to digest the facts and conclusions sub- 
mitted in the report of the Kapid Transit Com- 
mission, and there is a practically universal desire 
that the subject should now be taken up in earnest 
by the Legislature and the City Government. 
Opinions difier as to exactly what should be done, 
interests conflict, and capital hesitates ; but the 
way to solve the problem is to face it, discuss it, 
and to urge continually upon the State Legislature 
and the corporations interested the necessity for 
immediate and radical action. 

I have so frequently argued in public the vari- 
ous phases of this question that my views upon 
the subject must be familiar, and I will not re- 
hearse them here except to call attention to the 
different divisions of the problem. 

We need improved terminal facilities for the 
steam railroads entering Boston; the abolition of 
all grade crossings within the city limits; the re- 
adjustment of travel across the Charles river, 
and of navigation upon it, by means of elevated 
drawless bridges; a tunnel and certain street 


widenings for the benefit of the surface cars; a 
readjustment of the surface tracks in the centre 
of the city, which shall, if possible, remove all of 
them between Causeway and Kjieeland streets, 
except upon a few main thoroughfares; new or- 
dinances regulating travel upon our narrow streets 
and crowded sidewalks; and, finally, a proper sys- 
tem of elevated roads. 


An equally important subject is the improve- 
ment of the health and beauty of our city by the 
construction of public parks, by public ownership 
of the various riverways, and by the abatement 
of all dangerous nuisances. Arrangements have 
been made for the taking of all the lands and the 
completion of our park system as originally con- 
templated .out of the park loan authorized by 
the Legislature of 1891. We should, however, 
while there is yet time, secure certain tracts of 
land lying upon the confines of the city which 
can now be had for a very reasonable price, 
and which will furnish splendid parks for suc- 
ceeding generations. It is probable that about 
five thousand acres in the vicinity of the Milton 
Blue Hills, of the Muddy Pond woods in Hyde 
Park, and of the Middlesex Fells, could be pro- 
cured at an average cost of not over $100 an 
acre. If this territory could be secured at an ex- 


pense of $500,000 the money should be advanced 
by the State, as in the case of the Metropolitan 
Sewerage works, and the interest and sinking-fund 
requirements apportioned among the several com- 
munities benefited. 

The improvement of the banks of the Charles 
and Neponset rivers must, it seems to me, be se- 
cured by public ownership in a similar manner. 

The two plants for the treatment of epidemic 
diseases, established in 1892, should enable the city 
to cope successfiilly with the threatened invasion 
of cholera this year; but the selfish obstinacy of 
speculative land-owners has prevented the Board 
of Health from abating all the nuisances and pest- 
holes which exist in various sections of the city, and 
still continue to be a menace to the public health. 
Additional powers should be granted to the Board 
of Health, so as to enable them to compel the clean- 
ing of private ways and alleys; and the owners of 
tide-water flats should be obliged to fill them to 
grade 12. 

It will be necessary within the next ten years to 
procure an entirely new source of water-supply. 
I would recommend that this subject also be treated 
from a metropolitan standpoint, and carefully in- 
vestigated by a State commission of engineers. 



I am well aware that the magnitude of these 
suggestions frighten many persons, and that the 
diflBlculties surrounding their execution seem to 
others insurmountable. I have, however, sufficient 
confidence in the enterprise and public spirit of 
the citizens of Boston to feel convinced that when 
once fully aroused to the necessity for action they 
will not allow either financial difficulties or cor- 
poration influence to prevent their obtaining the 
things which are essential to the growth and 
prosperity of our city. I do not believe that 
the undertakings which have been carried out in 
. other cities of this country, with which Boston 
must compete for commerce, wealth, and popu- 
lation, are impossible of accomplishment here. 
I am unwilling to concede that the railroad com- 
panies entering Boston cannot be induced to im- 
prove their terminal facilities. What is being 
done in Baltimore, in Philadelphia, in Jersey 
City, and in Chicago, can be accomplished here. 
Selfish land schemers will seek to prevent the de- 
velopment of suburban territory upon proper street 
lines; but yjhy should the streets of every other 
large city in this country be laid out by public 
authorities upon public lines, and constructed 
practically without expense to the community, 
while in Boston the real-estate speculator 

• > 


is allowed to loot the city treasury for wS 
private benefit ? Those who fear that elevated 
railroads cannot be built in Boston without ap- 
propriating the streets and confiscating the 
rights of abutting owners should study the recom- 
mendations of the Kapid Transit Commission, or 
visit the city of Chicago, where capital, partly 
raised in Boston, has not hesitated to invest in 
elevated railroads built entirely upon private 
land. If the ten or twelve millions needed to 
provide new and wide thoroughfares of travel 
across the congested section of the city, seem a 
large sum, it should be recollected that this 
amount is less than one-half the expenditure for 
street widenings in the few years succeeding the ' 
close of the Civil War, less than one-third of the 
amount that the Cochituate water-works will 
cost when completed, and only about one-quarter 
as much as has been expended for street widen- 
ings since the incorporation of our city in 1822. 


It must be obvious that Metropolitan Boston will 
need a new and larger City Hall, and that the longer 
the building of it is delayed the more':' its site will 
cost; unless the Public Garden is selected for the 
purpose. The top of Beacon Hill still seems to me 
the most appropriate site ; and I would recommend 
that early action be taken in the matter. 



The present City Government is confronted by 
some of the most important problems which have 
arisen since the foundation of the city. Notwith- 
standing their magnitude and number, I beUeve that 
the people expect their chosen representatives to 
attack these problems in earnest, to consider them 
with care, and then to take such action, by petition 
to the State Legislature, or otherwise, as will best 
promote the interests of the city. 

With a desire to secure prompt and eflfective 
action by the City Government, I venture to sug- 
gest a readjustment of the joint committees of the 
City Council. These committees are now ap- 
pointed by departments, — that is, one for each 
division of executive work : a practice which was 
necessary before the charter amendments of 1885, 
but which, since the passage of that law, has failed 
to furnish to the members of the City Council fiill 
opportunities for the discharge of the duties they 
are elected to perform. It would be better to 
appoint the committees by subjects rather than 
by departments, and I would suggest that a joint 
committee be appointed for each of the various 
matters alluded to in this message. 

The City Government of 1893 will have done 
its duty by the people if it shall so contrive 
that the moneys raised by taxation and by loan 


shall be appropriated for purposes of general util- 
ity, and expended with economy; and shaU give 
its energies and thought to the solution of the 
greater problems upon which the future of Boston 
is dependent. 

Let us enter upon this work in a spirit devoid 
of partisanship, political or local, and with a deter- 
mination to serve the interests of the whole com- 





City of Boston, OmoE of the Mayor, 

City Hall, January 2, 1893. 

To the Honorable the City Council: 

Gentlemen : The amount that the city may appropriate 
from revenues and taxes for the fiscal year 1893-94 is 
$13,379,627, procured as follows: 

Department estimates of income . 
Corporation tax, estimated receipts 
Liquor licenses, estimated net receipts 
Estimated cash on hand Feb. 1, 1893 
Product of $9 law 
Extra for county expenses . 

Total for department expenditures 
Interest on city and county debt, $1,671,000 
Sinking funds and principal of 

debt 1,239,219 





Total $13,379,627 



I transmit herewith the department estimates of expen- 
ditures ; and my own recommendations in respect thereto 
are as follows : 




for ISSiMM. 












Assessing Department 

Auditing Department 

Board of Aldermen, salaries 

Board of Aldermen, contingent 

Board of Aldermen, soldiers' re- 
lief .... 

City Clerk 

City Council, contingent . 

City Council, incidental . 

City Messenger 

Clerk of Committees 


Common Council, clerks' ex- 

Common Council, contingent 

Engineering . 

Ferry Department . 

Fire Department 

Health Department . 

Hospital Department 

Inspection of Buildings . 

Inspection of Milk and Vinegar, 

Inspection of Provisions . 

Amounts carried forward, $2,238,130 $2,283,562 








* 30,000 





























Amounts brought foi^wardj 
Lamp Department, general 

expenses . • . • 
Lamp Department, gas and 

electric light companies 
Lamp Department, naphtha 

lighting .... 
Lamp Department, new work. 
Law Department 
Laying Out Streets Department, 
Library . 
Markets • 
Mt. Hope 
Printing • 
Public Buildings, armories 

Election expenses 

Rents . 

Salaries • . . \ 

Alterations and repairs . / 
Public Buildings, schools • 
Public Celebrations . 
Public Grounds 
Public Institutions . 
Begistration of Voters 
Registry Department 

Approprlatiooi BecommeDdatioiif 
for 1802-98. for 1803-04. 

$2,238,130 $2,283,562 














Amounts carried forward, 15,594,100 $5,501,617 




for Ig92-t3. 

for 1898-M. 























ATnounts brought forward y 

Relief of Poor .... 

Reserve Fund • 

School Committee . 

Sealer of Weights and Measures, 

Sinking-Fund Department 

Street Department, Central 
Office ..... 

Street Department, Bridge Div., 

Street Department, Cambridge 
Bridges Div. 

Street Department, Paving Div., 

Street Department, Sewer Div., 

Street Department, Street-Clean- 
ing Div 300,000 300,000 

Street Department, Street- 
Watering Div. . . . 100,000 100,000 

Street Department, Sanitary 

Surveying .... 

Treasury .... 

City Debt, sinking fund . 

City Debt, interest . 

County Debt, sinking fund and 
principal .... 

County Debt, Interest 

House of Correction 

County, general expenses . 



















Total $13,600,420 $13,379,627 


Water-Income Department : 
Cochituate Water- Works . 
Mystic Water-Works 



for 1892-8S. 

for 189S-M. 







Water-Supply Department : 
Cochituate Water-Works : 

Current expenses . . $355,000 $370,000 
Interest .... 811,017 831,748 

$1,166,017 $1,201,748 

Mystic Water-Works : 

Current expenses . . $127,750 $128,000 00 
Interest .... 19,257 16,827 50 

$147,007 $144,827 50 

Bespectfully submitted, 

N. Matthews, Jr., 





City and County Debt. 

Gross funded debt, Dec. 81, 1891 . . . $56,242,745 90 
Add funded debt issued in 1892 . . . 2,977,800 00 

$59,220,545 90 
Deduct funded debt paid in 1892 . . . 2,136,982 71 

Gross debt, Dec. 31, 1892 .... $57,088,563 19 
Sinking funds, Dec. 31, 1891 . $25,518,981 58 
Receipts during 1892 . . 2,874,790 38 

$28,393,771 91 
Payments during 1892 . . 2,164,275 05 

$26,229,496 86 
Bonds, betterments, etc., the 
payment of which is pledged 
to the payment of debt : 

Bonds . . . $3,587 00 
Betterments, etc. . 157,878 27 
Sidewalk assess- 

ments, chap. 401, 

Acts of 1892 . 84,160 84 
Sewer assessments, 

chap. 402, Acts 

of 1892 . . 69,155 25 

314,776 36 

Total redemption means Dec. 31, 1892 . 26,544,278 22 

Net debt, Dec. 31, 1892 $80,539,289 97 



Gross debt, Dec. 81, 1892 
Gross debt, Dec. 31, 1891 


Net debt, Dec. 81, 1891 . 
Net debt, Dec. 81, 1892 . 


. 157,088,568 19 
. 56,242,745 90 

$840,817 29 

. $30,708,858 34 
. 80,639,289 97 

$164,068 87 

City debt, iDclnding balance of debts assumed 

by acts of annexation $36,439,789 21 

County debt 8,445,000 00 

Cochituate water debt 16,758,778 98 

Mystic water debt 440,000 00 

$57,088,568 19 







































Public Park Oonttractlon . . . 
Baffolk Conoty Conrt-Honae' . 

Harvard Bridge 

Pablic Park Lands 

Sewer, Tremont at 

Stony Brook Improvement . 

Pablic Park Lands 

New Library Baildlng .... 
W. Chester.park Extension . . 

Congresi-st. and Oliver-st. Ex- 

Improved Sewerage 

Pablic Parks, Charlestown . . 

Public Parks 

New Library Building . . . . 

Laying Out and Oonstruetlon of 

Suffolk County Oourt-House 


$2,600,000 00 

< 76,000 
» 75,000 


Date of 

* 500,000 00 
600,000 00 

200,000 00 

> 8,500,000 00 
1,000,000 00 

100,000 00 

June 21, 1886 
Mar. 21, 1887 
May 18, 1887 
May 26, 1887 
June 11, 1887 
June 16, 1887 
May 23, 1888 
Mar. 1,1889 
April 12, 1880 

AprU 26, 1880 

May 0, 1889 

May 6 and 
June 28, 1890 

May 7, 1891 

May 11, 1891 

May 9, 1892 


$2,500,000 00 

2,600,000 00 

250,000 00 

400,000 00 

600,000 00 

600,000 00 

1,000,000 00 

600,000 00 

200,000 00 

1,000,000 00 
100,000 00 

256,800 00 

50,000 00 

^ $2,500,000 In addition to the cost of land. Cost of land, $1,056,469.69; $2,706,000 author- 
ized by City Coancil. 

* Never approved by City ConncU. 

a Entire loan authorized by City Council; only $1,000,000 issued. 

* Not exceeding $1,000,000 each year — debt authorized in 1891 ($500,000) inside of debt 
limit: debt authorized hereafter will be outside of debt limit. 



Loans issued in 1892. 

Date of Order. 

• • • 

Oct. 26, 1801 
Dee. 6, 1891 

Dec. 10, 1891 . . . 

Dec. 24, 1891 . . . 

Jul. 28, 1892 . . . 

 • * 

U C« II 

 • • 

May 20, 1891 . . . 

Not. 18, 1889 . . . 

ICayaO, 1801 . . . 

May 24, 1802 . . . 

Aug. 26, 1802 . . . 

July 11, 1802 . . . 

• • • 

Oct. 24, 1801 
Sept. 80, 1802 . . . 

Aug. 24, 1802 . . . 
Oct. 7, 1892 . : . . 



L-et Bridge 

Commoowealth ave., OonatracUon . 

Doroheeter ave., Paving, Wards 16 
and 24 

Allston Bridge 

ImproYcd Sewerage . . . . 
Extension of Mains . . . . 
Street Constmction Act . . 
Additional Supply of Water 

Public Parks 

Various Municipal Purposes 
Suffolk County Conrt-House 

• • • • 

Suffolk County Oourt-Honse, Fur- 

Library Building, Dartmouth st. 

Buildings, Gallop's Island and Swett 

New Lunatic Hospital 

Laying Out Streets Department 

Included in 
Debt Limit. 

Inside Debt Limit . .$1,992,800 00 
Outside ** ** . . 986,000 00 

$2,977,800 00 

$841,000 00 
180,000 00 
210,000 00 

126,000 00 

90,000 00 

100,000 00 

206,800 00 

680,000 00 

60,000 00 
46,000 00 
16,000 00 

$1,902,800 00 

Outside Debt 

$100,000 00 

286,000 00 
800,000 00 

200,000 00 

60,000 00 
100,000 00 

$986,000 00 



Loans authorized but not issued, Dec. 31, 1892. 

Data of Order. 

Nov.lS,lS89 . 
May 20, 1891 . 

May ao, 1891 . 

Oct. 24,1891. . 

Dec. 5, 1891 . . 

Jan. 2, 1892 . . 

Jan. 23, 1892. . 

Jane 1,1892. . 

July 11, 1892 . 

Aug. 25,1892 . 

May 24, 1892. . 

Ang.24,1892 . 

Oct. 7, 1892 . . 

Oct. 7,1892 . . 


Additional Sapply of Water 

l4iyuig Out and Conttmction of 

labile Parks 

Library Balldlng, Dartmontb st. . . 

L-et. Bridge 

City Hospital Improvements . . . . 

Improved Sewerage 


Debt Limit. 

Snffolk County Conrt-Honse, Far- 
Dishing . . 

Baffolk Connty Conrt-Hoose . . . . 
Various Manicipal Parposes . . . . 

New Lunatic Hospital 

Laying Out Streets 

City Hospital, Additional Land . . . 

Inside Debt Limit . 
Outside " " 

$1,686,426 00 

. 3,858,600 00 

$5,544,925 00 

$248,200 00 

80,000 00 
130,500 00 
150,000 00 

919,725 00 

155,000 00 

10,000 00 

42,000 00 

$1,686,425 00 

Debt Limit 

$227,600 00 

2,600,000 00 
900,000 00 

76,000 00 

60,000 00 
106,000 00 

$3,868,500 00 

Balances from Loans, Dec. 31, 1892. 

Improved Sewerage 

Laying Out and Constraction of Highways 
Bedford and Kingston streets .... 

Forbes street 

Harvard street 

Jerome-place extension 

Norfolk street 

$50,032 45 
4,462 45 
15,750 00 
2,332 26 
1,000 00 
3,000 00 

Amount carried forward^ 

$81,077 16 








Amount brought forward^ 
Park street, Charlestown, widening and oon- 

stmcting .... 
Talbot-avenae extension 
Ward street 

Widening Commercial street 
Pablic Parks 

Pnblic Park Constmction . 
Pablic Parks, Charlestown 
Public Park Lands 
Elevator, City HaU . 
Engine-honse, Ashmont 
Fire Department Building and Site, 

Headquarters, etc. 
Hospital for Horses 
Library Building, Dartmouth street . 
Police Station-honse, Brighton . 
'' " No. 13, Land and 

tion to 
Ward-room, Ward 2, Enlargement of 
Addition to House of Lidustry 
Barn, Long Island .... 
Electric-lighting Plant, Long Island 
Parental School for Boys . 
Austin Primary School-house, building 
Cook School-house, enlargement of yard 
Grammar School-house, Hillside District 
*' *' Mt. Vernon District 

. *' " North Brighton, site 

" *« buUding, 

Pierce District 






Amount carried forward^ 

$81,077 16 

6,600 00 

2,467 00 

700 00 

1,796 88 

86,366 86 

267 78 

101,661 96 

297 26 

HI 65 

4,968 87 

8,102 98 

88,250 86 

9,970 49 

2,849 75 

6,684 10 

7,444 99 

4,952 69 

13,065 71 

1,883 47 

6,307 53 

990 00 

1,271 05 

95 39 

945 96 

1,469 82 

405 00 

3,358 91 

832 95 

$398,470 86 



Amount brought forward^ 

Lyceum Hall, Dorchester 

*• " " to fit for primary school, 

Mechanic Arts High School 

Primary School-house, Adams District 

Beech street, site 
Lot, Blossom street 
Bunker Hill District 
Dillaway District, build 

ing . 
Emerson District . 
Frothingham District 

land . 
Gardner street, site 
George Putnam District 
Hillside District 
Lowell District 
North of Broadway 
Oak square, etc. 

AUston bridge .... 

L-street bridge .... 

Rebuilding bridges to Watertown 

Beacon street .... 

Brent street .... 

Chardon street .... 

Commonwealth-avenue Construction 

Conant street, macadamizing 

Davis street, asphalt . 

Decatur street. Ward 16, asphalt 

Dorchester avenue, paving. Wards 15 and 24 

Dorchester street, Ninth street to Broadway, 

Amount carried forward^ 





$393,470 35 

10,000 00 

714 73 



776 91 

5,595 00 

2,654 38 



7,913 83 















34 52 

22,945 03 





4,848 85 



349 45 











2,935 35 

$665,468 40 



Amount brought forward^ 
Eighth street, L to O street, edgestones, etc. 
Florence street, asphalt 
Harbor View street 
Houghton street, macadamizing . 
L street, grading, etc. 
La Grange street 
Lexington avenue 
Sawyer avenue .... 
Second street, Dorchester street to 


Smith street, construction . 

Street Improvements, Aldermanic Dist 















Ward 12 
Tuttle street 
West Newton street, between Washington street 

and Shawmut avenue, asphalt blocks 
Sewer, between Roslindale and West Boxbury 
Sewers, Brighton 
Sewer outlets, D street 
Sewer outlets. East Boston 
Sewers, Roxbury 
Sewers, Savin Hill District 
Sewers, South Boston 

Sewers, Ward 23, Washington street, etc. . 
Sewers, Westville, Freeman, and Charles streets 
Stables and sheds, Brighton 


Additional supply of water .... 
High service 

Amount carried forward^ 

$665,468 40 











3,697 00 









































4,200 50 



40,470 48 

$799,779 79 



Amount brought forward^ 

Protection of water-supply . 
Suffolk County Coort-Hoose 

*' '* ** famishing 

Jackson street 

Howell street 

Buildings, Gallop's Island and Swett street 
New Lunatic Hospital 
New buildings, City Hospital 
Congress-street bridge, guard 

$799,779 79 

80,000 00 

12,096 04 

744 59 

1,600 00 

1,500 00 

14,622 26 

10,500 00 

9,963 54 

534 31 

$881,240 53 

Jaices H. Dodge, 

City Auditor. 





Assessors' Office, Citt Hall, 

Boston, Dec. 31, 1892. 
Hon. Nathan Matthews, Jr., 

Mayor of the City of Boston : 

In conformity with the provisions of the Reyised Ordi- 
nances, we herewith transmit a statement of the Assessors' 
valuations for the preceding five years, and of the abatements 
thereon allowed previous to the thirty-first day of December; 
also the average of such valuations reduced by such abate- 

Year. Valnations. 


1888 . . $765,855,048 39 


1889 . . 795,941,048 71 


1890 . . . 822,456,800 00 


1891 . . . 855,413,414 62 


1892 . . 895,987,904 00 


$4,135,154,210 72 


Less abatements, 38,588,200 00 

$4,096,566,010 72 

Divided by 5 . $819,313,202 00 

Respectfully submitted, 

For the Board of Assessors, 

Joshua S. Dunoexee, 





CoLLBcnNG DBPABTMBirr, City Hall, 

Boston, Dec. 31, 1892. 
Hon. Nathan Matthews, Jr., 

Mayor of the City of Boston : 

Sib: The assessineiits oommitted to the Collector for the 
financial year beginning Feb. 1, 1892, not including Cochituate 
and Mystic water rates, amount to $13,584,568.56. Of this 
amoant there has been to Dec. 31, 1892, $11,464,079.15 collected, 
$105,044.61 abated, and $2,015,444.80 remains uncollected. 
This includes the State, City, and County taxes, $11,656,484.92, 
of which $9,903,985.31 has been collected, $85,985.07 abated ; 
leaving $1,666,514.54 unpaid, and the Bank tax, $841,176.75, 
all of which has been paid. 

The Cochituate water rates, assessed on the first of January, 

1892, and additional and meter rates assessed during the year, 
amount to $1,576,967.89. There has been paid of these rates 
$1,366,859.52; abated, $16,808.17; leaving $193,300.20 unpaid. 

The Mystic water rates for the same time stand as follows : 
Assessed, $387,079.50; paid, $374,048.25; abated, $9,965.48; 
unpaid, $3,065.77. 

There has also been received of the Cochituate water rates for 

1893, $18,176.25, and of the Mystic water rates, $1,186.50. 

The total receipts from all sources from Feb. 1, 1892, to Deo. 
31, 1892, inclusive, amount to $16,667,926.06. 

A general summary of the accounts shows that the balance of 
bills and assessments outstanding 


Jan. 1, 1892, was $2,455,805 17 

The asseBsments from Jan. 1, 1892, to Dec. 31, 

1892 . 15,640,482 14 

Cash deposits from Jan. 1, 1892, to Dec. 31, 

1892 2,771,661 49 

Total amount charged to Collector $20,867,448 80 

Of this amount the Collector is credited with 

abatements $294,629 79 

The Collector is credited with cash paid City 

Treasurer 17,795,279 08 

Balance uncollected 2,777,539 93 

$20,867,448 80 

The following statement shows the amount of the Assess- 
ors' warrants for two years : 

1891-92 $10,860,874 76 

1892-93 11,656,484 92 

and the collections, abatements, and amounts outstanding 
thereon to December 3l8t of the respective years: 

1891-92. Collected . . $9,030,534 35 or 83.1% 

Abated . . . 61,089 22 '* .6% 

Uncollected . 1,769,251 19 " 16.3% 

$10,860,874 76 

1892-93. Collected . . . $9,903,985 31 or 85. % 
Abated . . 85,985 07 ** .7% 

Uncollected . 1,666,514 54 << 14.3% 

$11,656,484 92 

Respectfully submitted, 

James W. Bicker, 

OUy OoUector. 




CiTT OP Boston, 
BoABD OF Commissioners of Sinking-Funds, 

Cnr Hall, Jan. 2, 1893. 

Hon. Nathan Matthews, Jr., 

Mayor of the Oity of Boston : 

Sir : In accordance with the provisions of chap. 98, 
Acts of 1891, it is estimated that the amount which the 
city will be able to borrow daring the present municipal 
year within the debt limit established by law is $3,910,618, 
as per schedule annexed. 

A. Davis Weld, 
Henrt R. Reed, 
Samuel Johnson, 
Joseph H. Gray, 
Chas. H. Allen, 
Nathaniel J. Rust, 
Board of Gommissioners of Sinking-IfSinds, 

Alfred T. Turner, 

City Treasurer. 
James H. Dodoe, 

City Auditor, 



Total Debt, City and County, Dec. 81, 1892 
LeM Special Loans (outside of limit) 

Cochitaate Water Debt 

Mystic Water Debt 

County Debt (outside of limit) 

. $57,083,568 19 

f 7,050 000 00 

16,768.778 98 

440,000 00 

2,650,000 00 

26,898,778 98 

•80,184,789 21 

Sinking Funds 

Less Cochituate Water Sinking 
Fund $6,966,458 96 

Mystic Water Sinking Fund, 578,082 28 

Public Park Construction Sink- 
ing Fund .... 888,227 88 

Special Loans Sinking Fund, 416,560 72 

County Court-House Sinking 
Fund 158,962 62 

$26,229,496 86 

8,503,257 46 

17,726,239 40 

Debt, excluding Loans outside of limit, and deducting Sink- 
ing Funds for said debt $12,458,549 81 

Two per cent, on $790,086,144, average yaluation for flye 

years, less abatements $15,800,722 88 

Debt as above 12,458,549 81 

$8,842,178 07 

Average valuation for five years, less abate- 
ments to Dec. 81, 1892 . . . . 

Average valuation for five years, less abate- 
ments to Dec. 81, 1891 .... 

Two per cent, on increase 

Laterest on Investments, Jan. 1, 1898 



$29,277,058 585,541 00 

75,491 00 

Right to borrow, Jan. 1. 1893 $4,008,205 00 



Bight to borrow 

} Jan. 1, 1893 . 

. $4,003,205 00 

April 1, 1893. 

Interest on Investments 

170,000 00 

July 1, 1893. 

70,000 00 

Oct. 1, 1893. 

155,000 00 

" 1, 1893. 

Debt paid from Appropriation 

17,000 00 

Nov. 1, 1893. 

Appropriation for Debt 

1,026,838 00 

" 1, 1893. 

Interest on Investments 

17,000 00 

Dec. 31, 1893. 

Sterling Debt Redeemed . 

80,000 00 

" 31, 1893. 

Interest on Bank Deposits 

58,000 00 

$5,597,043 00 

Less loans authc 

)rized, but not negotiated • 

. 1,686,425 00 

$3,910,618 00 



m ■> 









JANUARY I, 1894. 

Rockwell and Churchill, City Printers. 


'- - 'f '. 








JANUARY I, 1894. 



%. 1680. ^^ 






January 1, 1894. 

Orderedj That His Honor the Mayor be requested to 
furnish the City Council with a copy of his inaugural 
address for pubUcation. 

Passed. Sent down for concurrence. January 1, came 
up concurred. 

A true copy. 

Attest : 

John M. Galvin, 

City Clerk. 


To the Honorable the City Council: 

Gentlemen: The first business of the city 
government of 1894 will be the consideration 
of the 


for the fiscal year 1894-5. 

The city is authorized by St. 1885, Ch. 178, 
to raise annually by direct taxation enough 
money to meet the estimated requirements of the 
year for interest on all loans for city and 
county purposes, and for the accumulation of a 
sinking fund sufficient to pay the funded debt 
of the city and county at maturity. 

The amounts estimated as required and duly 
appropriated for interest and sinking-fund pay- 
ments on account of these loans during the 
past nine fiscal years, have been: 


For SlsklDg Fand 

ToUl Debt 


For Interest. 

and Debt Pasrmenta. 


1885-86 . . , 




1886^7 . . , 




1887-88 . • , 




1888-89 . . , 




1889-90 . . , 




1890-91 . . . 




1891-92 . . . 




1892-93 . . . 




1893-94 . . . 




1894-95 . . , 




The city is allowed by the same law to levy 

an annual tax for general municipal purposes 

equivalent to nine dollars on every thousand of 

the average of the assessors' valuations of the 
taxable property of the city for the preceding 

five years, less abatements to the thirty-first day 
of December preceding; and by St. 1887, Ch. 
281, authority was given to add to the annual 
tax-levy the sum of $425,000 for county pur- 

The following table shows the revenue of the 
city from year to year under the nine-dollar 
law of 1885: 


Average yalaations for flye years, less 
abatements to December 31. 


9661,011,076 00 
670,035,172 00 
678,768,000 00 
694,078,430 00 
711,071,286 00 
733,736,943 00 
761,236,068 00 
790,036,144 00 
819,313,202 00 
850,076,262 00 

Nine dollars on a thousand amounted 


For 1885-86 .... 
1886-^7 .... 
1887—88 .... 

1889-90 .... 
1890-91 .... 
1891-92 .... 
1892—93 • . . . 
1893-94 .... 
1894H95 ... 

$5,949,099 68 
6,030,316 55 
6,108,867 00 
6,246,705 87 
6,399,641 57 
6,603,682 49 
6,851,124 61 
7,110,325 30 
7,373,818 00 
7,650,686 35 

The city also receives a large revenue from liquor 
licenses and other miscellaneous sources, estimated 
by the Auditor for the coming year at $2,490,000. 

The product of the nine-dollar law, the addi- 
tional $425,000 allowed by the Act of 1887, and 
the miscellaneous revenues of the city make to- 
gether the total annual income of the city and 
county available for general department expendi- 
tures. This amount, added to the interest and 
sinking-fund requirements for the year, makes the 
full amount which the city government can ap- 
propriate for the annual expenditures for the city 
of Boston and the county of Suffolk. 

The operation since 1885 of these limitations 
is shown in the following table: 






I II R ^ 4 II J 

i I i. I S II 11 

^ 2. S It 2. I I. S. A 
t A 2 I § I S i I I 




s S § R I I § I I § 


00 00 

00 Ok 

o e 

1 1 § i I II 1 1 I 

• \ 8. n '. '•^ 3. •. •-. "*- 

M M e< M M C« M 






I § § I S'§ S. II I 

i: 1 1 1 i i s. A 1 1 



It will be noticed that while the nine-dollar 
law will produce $276,868 more from taxes in 
1894-5 than in 1893-4, yet the miscellaneous rev- 
enue of the city, which varies considerably from 
year to year, is expected to fall below the revenue 
for 1893-4 by $266,590, leaving available for the 
department expenditures of 1894-6 only $10,278 
more than in 1893-4. This decline in revenue is 
due partly to the fact that no sales of city property 
have been made since February 1, 1893, and partly 
to the slowness with which the taxes for the year 
are being paid. 

I shall submit to-day my recommendations con- 
cerning the appropriation order for the coming 
year, together with the department estimates. 
These estimates and recommendations are sug- 
gestions merely. The sole power to originate 
appropriations is vested in the city council; 
and that body, while it cannot appropriate more 
in the aggregate than the total named, can by 
a two-thirds vote in each branch distribute the 
money among the different departments as it 
sees fit. 

After the appropriation order has been passed, it 
will be incumbent upon the several departments to 
observe carefully its terms and limitations. The 
city has lived within its income during the past 


three years; no money has been borrowed since 
May 1, 1891, for ordinary department expenses; 
and the accounts for the present fiscal year will 
show a cash surplus at the close of business on 
the thirty-first of this month. The heads of 
departments should understand that no return to 
the practice of borrowing money for ordinary 
department expenditures will be permitted, and 
that they must keep their expenditures within 
the appropriations granted by the city council. 


The tax rate for 1893 for city and county pur- 
poses was the lowest since 1876; but the rate 
for State purposes was the highest since 1888. 
It is earnestly to be hoped that the legislature of 
1894 will restrict its expenditures to a total con- 
siderably below the figures of 1893. If the direct 
State tax-bill does not exceed $1,750,000 (the 
amount levied in 1892), and if the annual increase 
in valuations is as much as during the past few 
years, the tax rate for 1894 for city, county, and 
State purposes will be less than last year. It is 
not unlikely, however, that the valuations for 1894 
will be no more, and perhaps even less, than those 
for 1893; in which case the tax rate will be about 
what it was last year, or possibly somewhat higher. 



The condition of the funded debt of the city, 
including all water and county loans, on Decem- 
ber Slst of every year since the annexations of 
1874, is shown in the following table: 





GroM D«bt. 

$48,474,841 96 
48,886,882 24 
44,958,822 80 
48,854,444 06 
41,809,588 81 
48,022,816 20 
41,108,750 60 
40,018,598 02 
41,105,577 88 
42,544,128 96 
42,981,984 91 
48,416,945 84 
46,887,887 86 
48,682,428 58 
48,576,569 29 
51,185,741 09 
55,440,861 06 
56,242,745 90 
57,088,568 19 
55,881,685 15 

Meant of 

$15,661,906 78 
16,881,626 50 
16,681,789 84 
16,498,979 12 
15,625,411 89 
16,925,088 15 
14,445,294 19 

15.770.551 42 

16.724.552 86 
17,282,488 44 
18,215,870 64 
18,716,981 55 
19,988,492 89 
21,054,840 11 
21,725,667 80 
22,868,958 08 
24,886,864 08 
25,589,887 56 
26,544,278 22 
22,111,528 22 

Net Debt. 

$27,812,985 28 
27,505,005 74 
28,277,082 96 
26,855,464 94 
26,184,171 42 
26,097,788 05 
26,658,456 41 
24,248,046 60 
24,881,025 02 
25,811,685 52 
24,766,064 27 
24,700,014 29 
26,854,895 47 
27,627,688 47 
26,850,901 99 
28,821,788 06 
81,058,496 98 
80,708,858 84 
80,589,289 97 
88,720,111 98 


While the increase in the net debt during the past 
three years has been only $2,666,614.95, and while 
this increase is at least $2,000,000 more than it 
would have been if the condition of the money 
market in September and October, 1893, had not 
rendered a large issue of bonds a prudent measure 
of precaution, still it is to be regretted that there 
was any increase whatever. Every effort should be 
made during the coming year to prevent any further 
increase, and if possible to effect a reduction, in the 
net city debt. 


It seems to me that under existing conditions 
the exercise of the power to borrow money 
should be restricted to objects of immediate 
and admitted necessity, and to such other im- 
provements, valuable in themselves, as will 
involve payments for construction rather than 
expenditures for land. The park system is 
in need of additional money for construction, 
and I would recommend a loan of $500,000 
for that purpose ; an equal amount could well 
be appropriated for public buildings, chiefly for 
the city hospital and schools ; and $500,000 
might well be allotted to street construction ; 
making a total loan for these purposes of 


fl,500,000, A new bridge to Chariestown is 
a necessity. These and the proposed extension 
of Columbus avenue through Pynchon street to 
Franklin Park are improvements which, in my 
judgment, might well be provided for at the 
present time. 

Money for these several items can all be pro- 
cured within the debt limit, as the borrowing 
capacity of the city is $2,976,852 ; and it is to 
be hoped that no application will be made to 
the legislature of 1894 for leave to borrow out- 
side the debt limit, except in connection with 
the proposed subway. 


It should be our aim to push ttie park system 
to completion. The Parkway should be com- 
pleted to Franklin Park before the summer ; 
but the city has been compelled to pay very 
much more for land than was originally esti- 
mated, and the result is that the balance of 
the loans already authorized available for con- 
struction and for the erection of buildings is less 
than was anticipated. If the additional appro- 
priation already suggested is made, the park 
commissioners will be enabled to finish much of 
the work which will otherwise be left incomplete. 


Land for the park at the North End (author- 
ized by Statute 1893, Chapter 282) has been 
taken, and the work of demolishing the present 
buildings will be commencefd as soon as they 
can be vacated. 

The metropolitan park commission has begun 
its work, and is expected soon to take for park 
purposes the woods about Muddy Pond, in West 
Roxbury. If this is done, the new park should 
be connected with the Boston park system by 
constructing a parkway to the Arnold Arbore- 
tum or Franklin Park, provided the land-owners 
are willing to codperate with the city, 


The rejection by popular vote of the so-called 
Rapid Transit Act led the city government of 
1893 to adopt the alternative measure contained 
in Chapter 478 of the Acts of 1893, providing 
for the construction of a subway for street-railway 
purposes under Tremont street. This action was 
taken in the belief that a subway could be 
so constructed under Tremont and connecting 
streets as to accommodate all the railway tracks 
now entering that thoroughfare from the south 
and west; that the patrons of the street-railway 
system could in this way be furnished with 


quicker transportation and more convenient wait- 
ing-places than is possible under existing con- 
ditions; that the surface of Tremont street 
should be restored to the exclusive use of foot 
passengers, carriages, and teams forever; that 
the rentals for the use of the subway would 
probably be sufficient to cover the interest on the 
bonds to be issued under the Act, and to pro- 
vide a sinking fund for their payment at 
maturity; and that the State legislature and the 
city government of 1894 would be prompt to 
take such action in the premises as may be 
necessary to secure these ends« 

I shall this day appoint, subject to confirmation 
by the board of aldermen, the three members of the 
subway commission; and I trust that the charac- 
ter of the gentlemen selected will be taken ias a 
guarantee that this great project will either be. 
carried out in such manner as most to benefit the. 
public and within the appropriations that may 
be granted in advance, or not at all. 

The subway, if built, will be the property of 
the city, and is to be leased on public account at 
a rental to be fiLs:ed by the board of railroad 
commissioners. It is to be hoped that the West 
End Street Railway Company will from the out- 
set cooperate with the subway commission and 


the city government in the matter of approaches, 
and other details. 

The board of aldermen for the current year 
could perform no greater public service than to 
sanction or direct the removal of many of the 
West End tracks, which the company has either 
ceased to use, or continues to operate for the 
benefit of a few people only, to the inconvenience 
of all the rest. 


The relations between the city and the various 
gas companies doing business therein having been 
readjusted, it remains to discover what can be done 
to secure a wider benefit from the use of electricity 
to light our streets and parks. The electric lights 
now seen upon the highways have been placed 
hap-hazard for the benefit of individual applicants 
rather than erected upon a comprehensive plan for 
the benefit of the entire community; their cost is 
excessive, considering the number of them; and 
as the city is not permitted by law to establish 
a street-lighting plant of its own, it is at a dis- 
advantage in its negotiations with the electric- 
light companies. 

The legislature should permit cities and towns, 
under proper restrictions, to light their own 


streets and public places; but it is in every way 
preferable to conduct this business through the 
agency of private corporations if reasonable 
terms can be obtained. 

The superintendent of lamps informs me that 
he is at work upon a comprehensive plan for 
extending this branch of municipal service, and 
hopes to be able to obtain from the corporations 
interested such terms as will warrant its execution. 


The proper action of the city government in 
the matter of furnishing employment to the thou- 
sands of our citizens who are now unfortunately 
out of work is the subject of much discussion 
and diversity of opinion; and the present occa- 
sion seems opportune for the presentation of cer- 
tain fundamental considerations bearing on the 

Municipal governments in Massachusetts are the 
creatures of the State Legislature, endowed with 
^* such powers, privileges, and immimities not re- 
pugnant to the constitution, as the general court 
shall deem necessary or expedient for the regulation 
or government thereof.'' (Amendments to the Con- 
stitution, Article II.) They are not miniature States 
with power to act upon such political or social 


theories of government as may seem to their mem- 
bers wise ; they can raise no more money by taxation 
or by loan than is expressly authorized by statute; 
they can appropriate and expend this money only for 
such purposes as have been permitted by general or 
special laws. The city does not, in the opinion of 
the Supreme Judicial Court, collect its revenue " as 
absolute owner with an unfettered right of disposing 
of it for any object which a majority of the voters 
might select and determine." It is "received for 
the use and benefit of all the inhabitants, not for 
any class or portion of them, and can be expended 
in such manner and for such purposes as towns 
in their corporate capacity are authorized by law 
to use and appropriate money, and for no other 
object whatever." 

It is legally impossible under the laws of Massa- 
chusetts for the city of Boston to expend its revenues 
or to borrow money for the relief, support, main- 
tenance, or employment of the poor, except through 
the Overseers of the Poor for the relief of those 
unfortunates who are entitled under the provisions 
of Chapter 84 of the Public Statutes to assistance 
as paupers, or in the manner and to the limited 
extent allowed by Chapter 274 of the Acts of 1874; 
and in either case a special appropriation is required. 

These laws and limitations are enacted at the 


State House, not in the City Hall; and if changes 
are desired application must be made to the State 
Legislature, which alone has the power to enlarge 
the functions of our municipal government. 

Such appeals, however, should not be lightly 
made or hastily granted. The municipal law of 
Massachusetts does not differ materially from that 
of other States, and is a characteristic application 
of the general theory of our American institutions, 
the tendency of which is to restrict rather than to 
enlarge, the ftinctions of government. This theory, 
with the constitutional and other checks and 
balances which have been invented, to support it, 
is destined to be the chief defence of the Ameri- 
can people and their free institutions against the 
insidious encroachment of socialism and other for- 
eign remedies for the evils of civilization. It is 
the original and essential feature of American 
democracy; it has in recent years been too fre- 
quently departed from; and what is now required 
is rather a return to first principles than hasty 
and unwise extensions of the objects of public ex- 

The main reliance of every community in emer- 
gencies like the present must be the generosity 
and public spirit of its individual citizens. The 
people of Boston enjoy a well-deserved reputa- 


tion for hospitality, charity, and civic pride; and 
there is no reason to doubt that they will re- 
spond now, as in the past, to all urgent and well- 
considered appeals on behalf of poverty and want. 

While, however, the city, as a corporation, 
cannot expend its money for the sole purpose 
of providing employment or relief, except through 
the Overseers of the Poor, or by the City Council 
imder the special statute referred to ; while the 
executive officers of the city must faithfully ex- 
pend the appropriations granted by the . City 
Council for the purposes designated ; while they 
would not be justified either in exceeding these 
appropriations or in expending them upon work 
which cannot profitably be prosecuted at this 
season of the year, — it nevertheless does not 
follow that the city and its officers can do 
nothing in this emergency. 

Much, on the contrary, can properly be done by 
the heads of departments, other than the Overseers 
of the Poor, in furnishing as much employment 
as can be given without increasing the cost or 
diminishing the quality of the public work in- 
trusted to their care. Building contracts can be 
let, under present conditions, upon favorable terms. 
Deep-cut sewers can be built as well in winter 
as at other seasons of the year; the work of 


grading and filling new streets can be carried 
on, though no paving or surfacing can be done 
while the frost lasts ; stone can be quarried and 
crushed for use in the spring ; an indefinite 
amount of labor can at all seasons of the year 
be devoted to cleaning the public and private 
ways of the city ; and the work of in-door re- 
pairs can also be prosecuted at any time. 

The activity of the departments in furnishing 
work of the above description is limited only by 
the appropriations granted by the City Council ; 
these, in turn, are limited by the laws 'relating 
to taxation and indebtedness ; and within these 
limits every effort is being made to accelerate 
the progress of public work. 

In view of the probability of hard times this 
winter and of the possibility of an adverse bond 
' market, it was thought prudent in September and 
October, 1893, to offer for sale an unusually 
large and otherwise unnecessary amount of city 
bonds; and as soon as these sales were effected 
orders were given to press the work upon the 
buildings and other objects for which the pro- 
ceeds had been appropriated. Thirty-two build- 
ings are now under contract, and twelve 
more are almost ready to be advertised. An 
extra amount of deep sewer work has been laid 


out, sufficient, it is thought, to keep the entire 
force of the sewer division at work. Flans are 
being made for the extension of Boylston street, 
the widening of Blue Hill avenue, and for other 
work of street construction, upon which grading, 
clearing, and filling can be done this winter. 
Such work upon the parks as can be prosecuted 
in winter is now going on; and all the work pos- 
sible in the city ledges will soon be under way. 
Whether the number of the unemployed be 
greater or less than has been stated, it cannot 
be doubted that conditions of unusual severity 
confront the people this winter. Every citizen 
who can afford it should render aid, preferably 
in the form of work, to those in need of it; 
and this obligation rests with special emphasis 
upon public officials, whether elected or appointed. 
I take pleasure in acknowledging the alacrity with 
which the various heads of departments have re- 
sponded to the call for suggestions and assist- 
ance, and the generous contributions by city 
employees to the fund of 


In addition to the work undertaken by the city, 
the recently organized Citizens' Kelief Committee 
is attempting to furnish employment upon the 


streets and sewers. Thq street work consists of 
cleaning and carting, and is paid for by the com- 
mittee, the city furnishing tools and superintend- 
ence. The sewer work consists of sewers which 
cannot be built at this season of the year, ex- 
cept at unwarrantable expense; the city pays 
what the work would cost under normal condi- 
tions; and the committee makes up the diflference. 
This plan of relief is still in its experimental 
stage; but if successful, it has the great advan- 
tage over any other suggested of Securing the 
employment of more men for a given amount sub- 
scribed. Every effort is also being made to pro- 
vide employment for women, among whom the 
amount of distress is not to be measured by the , 
number of applicants for work. 

This committee is composed partly of city offi- 
cials and partly of well-known and public-spirited 
citizens who have volunteered to give their time 
and labor this winter to the cause of the unem- 
ployed. The community can have absolute confi- 
dence in their appreciation of the hard conditions 
which surround us, and in their prudence in ad- 
ministering relief. The good which this move- 
ment can accomplish is obviously limited by the 
amounts subscribed by the charitable people of the 
city, and I trust that the responses to the com- 


mittee's appeal for funds will continue to be as 
liberal as during the past two weeks. 

Oentlemen of the City Council : 

The City Council of 1894 will be constituted 
somewhat differently, with respect to party hues, 
than those with which I have had the pleasure of 
serving during the past three years. It should not 
be forgotten, however, that the practice of making 
party nominations for municipal ofSlces cannot 
make party issues out of municipal questions, 
unless these enter avowedly into the canvas. The 
success of one party or the other may affect ap- 
pointments by the Mayor or elections by the City 
Council, and the success or failure of the city 
government for the year will reflect credit or dis- 
credit upon the party which has made itself re- 
sponsible for the successful candidates; but with 
these qualifications it is literally true that there 
are no differences in city government based on 
state or national party issues. The questions that 
will absorb our attention this year are business, 
not party, questions. Let us resolve to approach 
the consideration of them in a spirit devoid of 
partisanship, political, personal, or local, and to 
merit the approbation of our fellow-citizens by 
unselfish devotion to the duties we have been 
elected to discharge. 




Crrr or Boston, Office of the Matob, 

CiTT Hall, January 1, 1894. 

To the Honordble the City Council : 

Gentlemen: The amount that the city may appropriate from 
revenues and taxes for the fiscal year 1894-95 is $13,891,754, pro- 
cured as follows: 

Department estimates of income • • • • f $775,000 

Corporation tax, estimated receipts • . • 875,000 

Liquor licenses, estimated net receipts • • • 790,000 

Estimated cash on hand February 1, 1894 . • 50,000 

Product of $9 law 7,650,686 

Extra for county expenses 425,000 

Total for department expenditures • • $10,565,686 

Interest on city and county debt • $1,580,720 
Sinking funds and principal of debt 1,245,348 


Total $13,391,754 



I transmit herewith the department estimates of expenditures, 
and my own recommendations in respect thereto are as follows : 

Appropriatioiui RocommendatloiM 
for 180S-M. for 1804-06. 

Architect Department 

• • • 



Assessing Department 

• • • 



Auditing Department 

• • • 



Board of Aldermen : 


• • • 



Contingent expenses 

• • • 



Soldiers' relief 

• • • 



City Clerk Department 

• • • 



City Council : 

Contingent expenses, Joint Committees, 



Incidental expenses 

• • « 



City Messenger Department 



Clerk of Committees Department 



Collecting Department 

• • • 



Common Council : 

Clerk's expenses • 



Contingent expenses 



Engineering Department 



Ferry Department 



Fire Department 



Health Department • 



Hospital Department • 



Inspection of Buildmgs Department • 



Board of Appeal 

• • • 


Inspection of Milk and 

Vinegar De- 


• • • 



Amounts carried fonvard 

$2,281,330 $2,273,730 



Ai»proprl«tloiii BeoommendatIon« 
forl80S-04. forl8M-«S. 

Amounts brought forward 

. $2,281,380 


Inspection of ProviBions . 



Lamp Department 



Law Department 



Library Department . 



Market Department . 






Mt. Hope Cemetery Department 



Overseeing of the Poor Department 



Park Department 



Police Department • 



Printing Department . 



Public Buildings Department 



Public Buildings, schools • 



Public Celebrations • 



Public Grounds Department 



Public Institutions Department . 



Registration of Voters Department 



Registry Department • 



Reserved Fund . • • • 



School Committee 



Sealing of W eights and Measures Def 

)'t, 19,953 


Sinking-Fund Department . 



Street Department: 

Central Office . . • • 



Bridge Division 



Cambridge-Bridges Division . 



Paving Division 



Sanitary Division . 



Amounts carried forward 

. $9,088,658 




for 1804-M. 

Amounts brought fortoard^ 



Sewer Division 



Street-Cleaning Division, 



Watering Division • 



Street Laying-Oat Department, 17,500 


Sarveying Department 




Treasury Department 



Hoose of Correction . 



County, general expenses • 



City Debt Requirements : 

Sinking Funds, $1,176,842 


Interest . 1,550,000 



o f!oq f»70 

County Debt Re- 

quirements : 

Sinking Fund 

and principal 

of debt . $62,877 


Interest • 121,000 





Totals ... 1 



Water-Income Department : 

Cochitnate Water- Works, 



Mystic Water-Works 



$68,800 $60,500 


Water-Supply Department : 
Cochitaate Water-Works : 
Current expenses 
Interest • • • . 
Sinking-Fand Reqairements 
Extension of Mains • 

ApproprUtlonii ! 

for 18M-«6. 










Mystio Water- Works ; 
Current expenses • . . $128,000 00 $128,000 00 
Interest 16,827 50 2,550 00 

$144,827 50 $130,550 00 

Bespectfnlly submitted, 

N. Matthews, Jb., 





Cnr AND Couirrr Debt. 

Gross funded debt, Deo. 81, 1892 • • . $57,083,563 19 
Add funded debt issued in 1893 .... 6,115,525 00 

$63,199,088 19 
Deduot funded debt paid in 1893 . • . 7,367,453 04 

Gross debt, Dec. 31, 1893 $55,831,635 15 

Sinking funds, Dec. 31, 1892 . $26,229,496 86 
Receipts during 1893 . • • 2,675,145 03 

$28,904,641 89 
Payments during 1893 • . . 7,203,747 07 

$21,700,894 82 
Bonds, betterments, etc., the 

payment of which is pledged 

to the payment of debt: 
Bonds • . • $3,587 00 
Betterments, etc. . 115,747 69 
Sidewalk assessments, 

chap. 401, Acts of 

1892 . . . 145,548 42 
Sewer assessments, 

chap. 402, Acts of 

1892 . • . 138,168 73 
Sidewalk assessments, 

chap. 437, Acts of 

1893 . . . 7,576 56 

410,628 40 

Total redemption means Deo. 31, 1893 . • 22,111,523 22 
Net debt, Dec. 31, 1893 .... $33,720,111 93 


Gross debt, Deo. 31, 1892 .... $57,083,563 19 
Gross debt, Dec. 31, 1893 .... 55,831,635 15 

Decrease $1,251,928 04 

Net debt, Deo. 31, 1893 $33,720,111 93 

Net debt, Deo. 31, 1892 30,539,289 97 

Increase $8,180,821 96 

Net debt, Dec. 31, 1893 $33,720,111 93 

Net debt, Dec. 31, 1890 31,053,496 98 

Increase $2,666,614 95 

City debt, indading balance of debts assumed 

by acts of annexation $35,019,361 17 

County debt . . • . . . • 3,659,000 00 

Cochitnate water debt 17,051,273 98 

Mystic water debt 102,000 00 

$55,831,635 15 

















Pnbllo Park Oonitrnctioii . . . 

Suifolk Ooanty €k»nit.Hoiuei . 

HuTwrd Brtdg* 

Pablio Park Land! 

Sewar, Tremont ft. • 

Stony-brook ImproTament . . 

Public Park Laoda 

Naw Library Building . . • . 

W. Cheitar-park Bxtanaion . . 

Congreu-0t. and Oliver-at. Ex- 

Improvad Sawaraga 

Pnblio Parks, Charlaatown . . 


Naw Library Building . . • . 
Laying Ovt and Oonttraetton of 



Suffolk County Oonrt-Houaa, 

Subway ........... 


$2,600,000 00 

* 76,000 
> 76,000 


1600,000 00 
600,000 00 

200,000 00 

8,600,000 00 
1,000,000 00 

100,000 00 
2,000,000 00 

Date of 










21. 1886 . 

21. 1887 . 
18, 1887 . 
11, 1887 . 
16, 1887 . 

12, 1880 . 

April 26, 1880 • 

May 0, isao . 

May Sand { 
June 28,18001 

May 7, 1801 . 
May 11, 1801 . 

May 0, 1802 . 
June 10, 1808 . 


$2,600,000 00 

2,781,000 00 

260,000 00 

400,000 00 

600,000 00 

600,000 00 

1,000,000 00 

600,000 00 

200,000 00 

2,401,000 00 
700,000 00 

1,000,000 00 

100,000 00 

1 $2,600,000 in addition to tbe ooit of Und. Ooat of land, $1,066,460.60; $2,781,000 author- 
ised by Oity Oounoil. 

> Kerer approved by City Council. 

• Not exceeding $1,000,000 each year— debt authorized in 1801 ($600,000).lniide of debt 
limit; debt authorized after 1801 outaide of debt limit.. 




D»te of Order. 

Not. 18, 1889 • . . 
May 20, 1891 . . . 
Ma720,1891 . . . 

Oct. 24, 1891 . • . 
Dee. 6, 1891 .... 

Jan. 2, 1892 . . . . 

Jan. 28, 1892 . . . 

Kay 24, 1892 . . . 

June 1, 1892 • . . 

Jalyll,1892 . . . 

Ang.24,1892 . . . 

Aug. 26, 1892 . . . 

Oot. 7, 1892 . . . . 

Oct 7, 1892 . . . . 

Feb. 15,1893 . . . 

June 26, 1898 . . . 

jQl7lO,1893 . . . 

Oct. 28, 1898 . . . . 

Oot. 27, 1893. . . . 


Additional Bupply of Water 
PabUo Parke 

Laying Out and Oonetmetton of 

Library Bnllding, Dartmouth Street 

L«treet Bridge 

New BnlldingB, City Hoapital . . . 

ImproTed Sewerage •••••••• 

Varlooa Municipal Porpoiee, 1892 . 

High Service 

Suffolk Oonnty Ooart-HouM, For- 

New Lunatic Hoapital . • 

Suffolk County Ooart-Honae . . • . 

Addittonal Land, City Hoapital. . . 

Street Laying Out Department . . • 

Laying Out and Oonatruotion of 

Emox and Lincoln Streeta 

Variona Municipal Purpoeea, 1898 . 

Stony-brook Damagea 

Suffolk County Couit-Houae, Far. 

Included in 
Debt Limit. 

Inalde Debt Limit . . $8,091,025 00 
Outaide Debt Limit . 8,024.600 00 

$6,116,626 00 

$248,200 00 

80,000 00 
186,600 00 
100,000 00 
919,726 00 

166,000 00 

42,000 00 
10,000 00 

960,600 00 

1,164,100 00 

80,000 00 

$8,091,026 00 

OuUide Debt 

$217,600 00 
1,401,000 00 

600,000 00 

75,000 00 
60,000 00 

106,000 00 

500,000 00 

76,000 00 

$3,024,500 00 




Date of Order. 


Debt IJmlt. 

Debt liimlt. 

Not. 18, 1880 . . . 
May 20, 1801 .. . 
Oot. 24, 1801 ... 
Jan. 23,1802 . • • 
April 28, 1808 . . . 
May 17, 1808 .. . 
Jaly 10, 1808 . . . 
Dec. 20, 1808 . . . 
Deo. 80, 1808 . . . 

Additional Sannlr of Water .... 

•10,000 00 

1,000,000 00 

800,000 00 

2,600,000 00 
600,000 00 

Pablio Parke . 

library Building, Dartmouth Street, 

Improved Sewerage 

AdditioDf^l BqodIt of Water • . • . 

•60,000 00 

Pablio Park, Wards and T .... 
Variona Mnnioipal Pnrpoaea, 1808 . 

Laying Oat and Oonetraotlon of High- 
way! ...••.••...••.. 

1860,000 00 

1,860,000 00 

860,000 00 

•2,000,000 00 

•4.400,000 00 

Indde Debt Limit . 
Outiride Debt limit . 

, •2.000.000 00 

4,400,000 00 

•0,400,000 00 

1 Chap. 282, Aots of 1808, anthorises the Olty of Boston to take land for a pablie park or 
playgronnd in Wards 8 and 7, the assessed Taloation of said land not to exceed •800,000; 
also aathorices the expenditure of ^60,000 for preparing said land for pablie use. 

James H. Dodge, 

City Auditor. 




Assessors' Office, Cttt Hall, 

Boston, January 1, 1894. 
Hon. Nathan Matthews, Jb., 

Mayor of the OUy of Boston: 

Sib : We herewith transmit a statement of the Assessors* valna- 

tions for the preceding five years, and the abatements thereon 

allowed previous to the thirty-first day of December. Also 

the average of such valuations reduced by such abatements. 





$795,943,043 71 



822,460,400 00 



855,413,414 62 



895,993,704 00 



924,425,251 72 


Totals . 

. $4,294,235,814 05 


Less abatements 

43,854,500 00 

$4,250,881,314 05 

Divided by 5, gives $850,076,262. 

For the Board of Assessors, 

Frank A. Drew, 





Boston, December 31, 1898. 

Hon. Nathan Matthews, Jr., 

Mayer of the City of Boston: 

Sib: The assessments committed to the Collector for the 
financial year beginning February 1, 1893, not including Co- 
chituate and Mystic water-rates, amount to 818,418,958.53. 
Of this amount there has been, to December 81, 1898, $11,182,- 
092.67 collected; •120,948.17 abated, and 82,165,922.69 remains 
ancollected. This includes the State, City, and County taxes, 
$11,989,720.72, of which $9,845,088.89 has been collected; 
$95,662.64 abated; leaving $1,999,019.19 unpaid, and the Bank 
tax, $821,715.20, all of which has been paid. 

The Cochituate water-rates, assessed on the first of January, 
1898, and additional and meter-rates assessed during the year, 
amount to $1,671,894.59. There has been paid of these rates 
$1,489,054.68; abated, $14,458.02 ; leaving $217,881.94 unpaid. 

The Mystic water-rates for the same time stand as follows: 
Assessed, $429,718.55; paid, $891,491.20; abated, $5,088.65; 
unpaid, $88,138.70. 

The total receipts from all sources, from February 1, 1898, to 
December 31, 1893, inclusive, amount to $16,528,958.16. 

A general summary of the accounts shows that the balance 
of bills and assessments outstanding 


January 1, 1898, was $2,769,771 48 

The assessments from Jan. 1, 1898, to Dec. 

81, 1898 16,712,524 89 

Cash deposits, from Jan. 1, 1898, to Dec. 

81, 1898 2,809,526 64 

Total amount charged to Collector $21,291,822 96 

Of this amount the Collector is credited, with 

abatements $877,284 45 

Cash paid City Treasurer .... 17,606,414 29 

Balance uncollected 8,808,174 22 

$21,291,822 96 

The following statement shows the amount of the Assessors' 

warrants for three years: 

1891-92 $10,860,874 76 

1892-98 11,656,484 92 

1898-94 11,939,720 72 

and the collections, abatements, and amounts outstanding thereon 

to December 81st of the respective years: 

1891-92. Collected . . $9,080,584 85 or 88.1% 

Abated • . 61,089 22 << .6% 

Uncollected . . 1,769,251 19 '' 16.8% 

$10,860,874 76 

1892-98. Collected . . . $9,903,985 81 or 85. % 
Abated 85,985 07 '' .7% 

Uncollected 1,666,514 54 '' 14.8% 

$11,656,484 92 


1893-94. GoUected . . . $9,845,038 89 or 82.5% 
Abated • . 95,662 64 '« .8% 

Unoollected . • 1,999,019 19 '' 16.7% 

$11,939,720 72 


BespectfoUy submitted, 

Jakes W. Bicker, 

City Collector. 




CiTT OF Boston. 
BoABD OF Commissioners of Sinking Funds, ^ 

Cnr Hall, January 1, 1894. 

Hon. Nathan Matthew|, Jb., 

Mayor of the City of Boston : 

Sir: In accordance with the provisions of chap. 98, 
Acts of 1891, it is estimated that the amount which the 
city will be able to borrow during the present municipal 
year within the debt limit established by law is $2,976,852, 
as per schedule annexed. 

A. Dayib Weld, 

Hbnbt R. Reed, 

Samuel Johnson, 

Joseph H. Gbat, 

Chas. H. Allen, 

Nathaniel J. Rust, 

Board of Commissioners of Sinking Funds. 

Alfred T. Turner, 

City Th'ecLSurer. 

James H. Dodge, 

City Auditor. 


Total Debt, City and County, Dec. 81, 1898 . $55,881,685 15 

Less Special Loana (ontside of limit) . . ^,551,000 00 

Cocliituate Water Debt .... 17,051,278 98 

Mystic Water Debt .... 102,000 00 

Comity Debt (ontside of limit) . . 2,881,000 00 

29,585,278 98 

1,480 88 I 

$26,246,861 17 

Sinking Funds $21,700,894 82 

Less Cochitnate Water Sinking 
Fnnd .... $7,528,198 88 

Mystic Water Sinking Fnnd, 264,045 56 

Pnblic Park Constmction Sink- 
ing Fnnd .... 471, 

Special Loana Sinking Fnnd, 551,982 66 

County Court-House Sinking 

Fnnd 205,898 72 

9,015,995 70 

12,684,899 12 

Debt, excluding Loans outside of limit, and deducting Sink- 
ing Fund for said debt '. . $18,561,462 05 

Two per cent, on $819,818,202, ayerage valuation for flye 

years, less abatements $16,886,264 04 

Debt as aboye 18,561,462 05 

$9,824,801 99 

Average valuation for five years, less abate- 
ments to Dec. 81, 1898 .... $850,076,262 

Average valuation for five years, less abate- 
ments to Dec. 81, 1892 .... 819,818,202 

Two per cent, on increase $80,768,060 615,261 20 

Interest on Investments, Jan. 1, 1894 . 69,185 00 

Right to borrow, Jan. 1, 1894 $8,509,198 00 


Right to borrow, Jan. 1 9 1894 .... $3,509,19800 

April 1, 1894. Interest on Investments 120,467 00 

July 1, 1894. '» an 62,775 00 

Oct. 1, 1894. *i ^' u , . 120,000 00 

«' 1, 1894. Debt paid from Appropriation . 17,000 00 

Nov. 1,1894. Appropriation for Debt . 963,517 00 

Dec. 31,1894. Sterling Debt Redeemed . 80,000 00 

«^ 81, 1894. Interest on Bank Deposits 50,000 00 

Jan. 1,1895. Interest on Investments . . 53,895 00 

$4,976,852 00 
Less loans authorized, bu| not negotiated . . 2,000,000 00 

$2,976,852 00 




Cmr OF Boston. 
Office of Cnr Trbasureb, 

Cur Hall, December 80, 1893. 

Hon. Nathan Matthews, Jb., 


Mayor of the City of Boston : 

Sib: The balance of cash in the Treasury of the City of 
Boston, December 80, 1898, was $4,596,458.02, held for the 
following purposes: 

For General Appropriations .... SI, 701,217 40 ^ 
For Special Appropriations, money derived 

from loans 2,647,892 18 

For Special and Trust Accounts 247,848 49 

$4,596,458 02 

Respectfully yours, 

Alfbed T. Tcbneb, 

City Treasurer. 




j\\ <)v^A.> /J^fK.- > \ 1  '1. S . S. 

[Document 1 — 1895.] 







JANUARY 7, 1895. 


Rockwell and CHxmcHiLL, City Printsrs. 



[Document 1 — 1895.] 







JANUARY 7, 189J. 

^ ^- •'^ i-^ ' ^^ 

BOST(D>]SriA 4?/ 

Rockwell and Churchill, City Printers. 



^. /^.^Su^w. 


In Board of Aldermen, 

January 7, 1895. 

Ordered^ That His Honor the Mayor be requested to 
furnish the City Council with a copy of his inaugural 
address for publication. 

Passed. Sent down for concurrence. 

At.fheus Sanford, 


In Common Council, January 7, 1895. 


Chris. F. O'Brien, 

A true copy. 


J. M. Galvin, 

Oity Clerk. 


€kntlemen of the City Council: 

It is customary for the Mayor, upon assuming 
oflBice, to state to the City Council the condition of 
the city, and to make such recommendations as his 
experience and judgment may suggest. Accordingly 
I ask your attention to the result of such investiga- 
tion as I have been able to make into our municipal 
affairs, and to my views upon what I consider the 
most important subjects demanding action at your 
hands. Any statement of the city's financial condi- 
tion must, of necessity, be based on information 
gleaned from the reports or communications received 
from the heads of the various departments. 

The policy of the new administration cannot be 
fully discussed at this time, the interval between 
election and inauguration being too short for an 
exhaustive study of the problems that confront a 
new executive. I shall, however, during the year 
give my best efforts to their solution. 

I shall refrain at this time from criticism of the 
departments, as the ordinance requires a report from 


each officer or board in charge of a department 
immediately after the close of the financial year, 
January 31st. From these reports should be obtamed 
a definite knowledge of what has been accomplished, 
together with the receipts and expenditures of each 
department. An opinion given now might do those 
in charge of the departments an injustice. I shall 
insist, however, that the requirements of the ordi- 
nance be strictly complied with, especially as to the 
time when the reports shall be made. 

To you belong the legislative, to me the executive, 
functions of the government, and although the line 
of separation is often finely drawn, it is not my 
intention to encroach upon your field. 


The revenue of the city and county may be classed 
under two heads ; namely, revenue raised by taxation, 
and revenue derived from other sources. 

The revenue for the coming year can be fairly 
estimated as follows: 

Prom taxation ($9 limit) . $7,891,149 00 

From taxation for county expenses . 425,000 00 
Income of the city from other 

sources 2,598,665 00 


A total of . . . $10,914,814 00 


The amount needed for interest and sinking-fund 
requirements of the city debt must be raised by 
taxation, and is not included in the nine-dollar 
limit law. For the coming year it will be $3,- 
098,229, which, added to the sum given above, viz., 
$10,914,814, makes a total of $14,013,043, which 
the city government can appropriate for the annual 
expenditures for the city of Boston and the county 
of Suffolk. 

The estimate for the total county expenses for 
1894-95 is 1734,750. 

Money derived from loans within the debt limit 
can be used for permanent improvements only, un- 
less the Mayor certifies that public necessity requires 
the borrowing of the same for current expenses. 
The borrowing capacity of the city during the 
coming year will be |2,337,074. 

Loans outside the debt limit can be made only 
by legislative authority, and application to the Leg- 
islature for this authority should be made only 
when there exists a need that cannot otherwise be 
provided for. 

The appropriations made to meet the interest on 
the city debt, exclusive of water debt, and for the 
sinking-fund and debt requirements, reached the 
highest mark in 1892-93, when the amount was 
$3,150,420. For the year 1894-95 the amount is 


$2,826,068. For the year 1895-96 the amount will 
be $3,098,229. 

The following table shows the financial condition 
of the city December 31, 1890: 

Gross debt of the city . . $55,440,361 06 

Sinking-fund and other redemption 

means ....... 24,386,864 08 

Net debt $31,053,496 98 

Add loans authorized but not issued. 789,000 00 

Net debt and loans authorized but 

not issued $31,842,496 98 

The following table shows the financial condition 
of the city December 31, 1894: 

Gross debt $58,654,211 56 

Sinking-fund and other redemption 

means 22,160,347 14 

Net debt $36,493,864 42 

Add loans authorized but not issued, 

not including loans authorized by 

Rapid Transit Act ... 5,490,000 00 

Net debt and loans authorized but 

not issued $41,983,864 42 

Increase in the net debt during the 

past four years .... $5,440,367 44 


Increase in the net debt and loans 

authorized and not issued during 

the past four years . . $10,141,367 44 

The cash on hand December 31, 

1890, was $5,939,227 36 

The cash on hand December 31, 

1894, was $3,135,663 49 

Let us face the fact squarely at the outset that 
the net debt must increase during the coming year 
on accoimt, not of what we are yet to do, but on 
account of what has been done already. It will in- 
crease because of the charges imposed upon us by 
the Rapid Transit Act and by the issuing of bonds 
now authorized to pay for work already commenced 
and from other causes. The interest and sinking- 
fund requirements of these loans will also necessarily 
increase the tax-rate. 

The amount borrowed within the debt limit for 

it five years is 

as follows: 


$2,281,000 00 


1,090,000 00 


1,992,800 00 


3,091,025 00 


3,309,800 00 

A total of 

. $11,764,625 00 



As stated above, there can be borrowed within 
the debt limit during 1895 about $2,337,074. 

The amount borrowed outside the debt limit (other 
than for water-works) during the past five years is 
as follows: 


$2,411,000 00 


1,389,000 00 


650,000 00 


2,732,000 00 


1,789,000 00 

A total of 

$8,971,000 00 

The assessors' valuation for the past five years 
and the abatements thereon, allowed previous to 
December 31, 1894, are as follows: 




1890 . 

$822,460,400 00 

$7,847,100 00 


855,420,414 62 

8,152,559 00 

1892 . 

895,997,104 00 

10,153,300 00 

1893 . 

924,446,151 72 

9,821,400 00 


928,461,442 53 

6,839,200 00 


. $4,426,785,512 87 

$42,813,559 00 

Less aba 

tements, 42,813,559 00 

$4,383,971,953 87 

The average valuation for the past five years is 

^ • 



$876,794,390. Upon this average valuation the 
tax for 1895 will be assessed under the nine-dol- 
lar limit law. The average valuation for the five 
years preceding 1894 was $850,076,262. Upon 
that average valuation the tax for 1894 was 
assessed. The increase in the amount that may be 
raised under the nine-dollar limit law in 1895 over 
the amount raised in 1894 will be $240,463, and 
the increase from other sources will be about $108,- 
665. Does the increase in revenue equal the increased 
demands upon our finances ? Assuming that no more 
money was appropriated last year than was neces- 
sary, we have only $349,128 additional to spend this 
year. Under Chapter 177 of 1887 the Board of Police 
is authorized to appoint a reserve force of police as 
authorized by the city. The Board of Police is now 
authorized to appoint one hundred men as a reserve 
force. By Section 2 of said Act all appointments to 
the regular police force shall be made from the re- 
serve force, and a service of six months as a reserve 
officer is required before promotion. Under existing 
laws, therefore, it will not be possible to appoint 
during the present year more than 200 of the 321 
patrolmen authorized by the last City Council, and 
this addition will cost for the term of service to 
February 1, 1896, about $142,000. With the open- 
ing of the new hospital buildings an additional 


amount of from $100,000 to $115,000 must be 
given to the appropriation for current expenses in 
that department, the schools must have $100,000 
more for current expenses. Increased appropriations 
will be absolutely necessary in other departments, 
which will more than use up the additional income. 


The loan of $1,000,000 made January 4, 1895, 
under authority given by Chapter 396 of 1894, is 
the last loan that can be made under existing 
laws for park purposes, except that which will be 
required to pay for lands taken for the North End 
park, and which is not limited in amount. Of this 
$1,000,000 there was required, December 31, 1894, 
$350,000 to pay judgments then outstanding, to- 
gether with settlements agreed upon to be paid after 
January 1, 1895. To pay the balance due on 
contracts entered into prior to December 31, 1894, 
there was required $250,000. The assessed valua- 
tion of lands already taken for which verdicts have 
not been given is $100,000, but judging from past 
experience the amount required to pay for these 
lands will be double their assessed value, or $200,- 
000. It is apparent, therefore, that of the $1,000,- 
000 loan above mentioned, the sum of $800,000 
was already mortgaged December 31, 1894, leaving 
a balance of only $200,000 for future expenditure. 


In my judgment it is time to suspend ithe 
further acquisition of lands for park purposes. 

The work already commenced should be finished. 
The Strandway, the land for which has already 
been taken and paid for, should not, in my 
judgment, be built until our financial condition 
will . warrant the great outlay needed for the 
undertaking. My knowledge of the work already 
commenced and necessary to place the land already 
acquired in condition for the present requirements 
of the system is too limited for me to state 
positively whether or not we can get along with- 
out further loans outside the debt limit, but I 
believe that authority for further loans for park 
purposes should not be asked of the Legislature 
at its present session, if we can possibly avoid it. 
To maintain the parks we already have will require 
during the present year $175,000, according to the 
estimate of the department, and their maintenance 
coming out of the revenue derived from taxation 
and income of the city is a heavy charge to meet. 
I believe in our parks, and enjoy them in common 
with others, but am of the opinion that we have 
expended and undertaken in this direction all that 
we can afford at the present time. 

In addition to our own system of parks, which 
have already cost over $12,000,000, the Common- 


wealth in 1893 appointed a board known as the 
Metropolitan Park Commission, who have already 
taken about six thousand acres of land for park 
purposes in "Greater Boston;" and it is now in 
their power, limited only by appropriation by the 
Legislature, to connect the large areas already 
acquired, and those to be acquired, by boulevards 
and parkways encircling the city of Boston and 
running through the cities and towns of the 
Metropolitan District. The Legislature has already 
authorized this commission to expend $2,300,000, 
but even more money will be needed to carry on 
its work. 

Now, by statute the city of Boston is to pay for the 
first five years fifty per cent, of the whole sinking- 
fund and interest requirements of the loans issued 
under the authority of the act establishing the board. 
After the first five years, the proportion Boston is 
to pay is to be fixed by a commission, but it 
probably will not be less than fifty per cent. The 
city's proportion of the Metropolitan sewerage loan, 
the armory loan, and the expense of abolishing 
grade crossings already amounts to a considerable 
sum, and next year our payments to the State 
must reach a sum which may seriously affect the 
finances of the city. 



Under the acts relating to the laying out and 
the construction of highways and private ways, 
and the making of sewers in the city of Boston, 
passed in the years 1891-94, commonly known 
as the " Board of Survey Act," there have been laid 
out Blue Hill avenue, Columbus avenue, Huntington 
avenue. Commonwealth-avenue extension over South 
street, Brighton, and various other streets. Sewers 
have also been built, and other sewers ordered on 
which work has not yet commenced. There have 
also been incurred expenses for the maintenance of 
the Board of Survey. The following table shows 
the land damages awarded and estimated by the 
Street Commissioners, the estimated cost of con- 
struction of the streets and sewers, and the expenses 
of the Board of Survey: 




Bine Hill ayenne .... 

ColambuB aTenue .... 

Huntington avenue . . . 

Commonwealth-avenue ex- 
tension over South street, 

Sewers, to complete 

Sewers ordered but not 

Various other streets . . 

Board of Survey expenses, 
estimated for 1896 . . 

Land DamagM. 

#76,875 00 
926,986 00 
230,353 00 

44,191 00 

$1,278,405 00 

Street and Sewer. 

•500,000 00 
825,000 00 
350,000 00 

70,000 00 
102,000 00 

178,000 00 
185,227 00 

•1,710,227 00 


#576,875 00 

1,251,986 00 

580,353 00 

114,191 00 
102,000 00 

178,000 00 
185,227 00 

70,000 00 

$3,058,632 00 

The following table shows the balance of the 
appropriation December 31, 1894, with the amount 
that can be borrowed imder these acts during the 
year ending December 31, 1895, and the estimate 
of the amount of the sinking-fund : 

Balance of appropriation . 
Loan authorized but not negotiated . 
Loan that may be authorized . 
Sinking-fund, estimated 

Total amoimt available between De- 
cember 31, 1894, and December 31, 

lo«7U ..•••• 

$121,357 41 

1,000,000 00 

500,000 00 

300,000 00 

$1,921,357 41 


It will be seen from these tables that the es- 
timated amount of money required to complete 
these avenues and sewers is $3,058,632, and with 
the amount that will be available to December 31, 
1895, is $1,921,357.41, or $1,137,274.59 less than 
the amount estimated to be required for the land 
damages and construction. We shall, therefore, not 
only be unable to construct the avenues and 
sewers already laid out, but we shall be unable to 
spend anything on new streets and sewers from 
the funds obtained under this act if we decide 
to spend all our available means on these under- 
takings already commenced. 

I commend to the careful consideration of the City 
Council the report of the Committee on School-houses 
recently made to the School Committee, from which 
it appears that the school accommodations furnished 
by the city of Boston for the education of its youth 
have not kept pace with the growth of the city, 
and that the amount of money "now needed" for 
the purchase of sites and the erection of school-houses 
is $2,357,000 ; also, that the sanitary condition of some 
of the school-houses, especially the older buildings, is 
bad. The amount of money estimated to be required 
immediately to perfect the sanitary condition of our 
school-houses is $100,000. It also appears from 
this report that the city is now paying in the 


neighborhood of $20,000 per year for hired rooms 
for the accommodation of upwards of 2,000 children. 
These rooms are in buildings which were not con- 
structed for schools, and are consequently wanting 
in the proper sanitary arrangements and ventilation. 
They are improperly lighted and heated, and in 
general are not adapted for school purposes. When- 
ever one of these buildings is taken a large outlay 
of money is required to put it into even passable 
condition for the use of the pupils. It wovdd 
appear, therefore, that the city of Boston is paying 
in the way of rent for hired buildings for schools 
a sum of money which would nearly, if not quite, 
equal the interest on $500,000 at 4 per cent, per 

If the figures and facts given in this report are 
to be relied upon (and we may assume that they are, 
because the committee making this report are in a 
position to know the facts), it will be impossible for 
the City Council to provide from the tax levy or 
from loans within the debt limit so large an amount 
of money in the next few years for this purpose, 
taking into consideration the many other require- 
ments upon our finances. It appears to have been 
the judgment of the last City Coimcil that money 
for this purpose be borrowed outside the debt limit, 
and an order was passed requesting the Mayor to 


petition the Legislature for that authority. The 
City Council might well consider also the source 
from which to derive the means to maintain these 
schools (even when built) up to the proper stand- 
ard of efficiency as regards teachers, attendants, 
repairs, and supplies, while the calls upon our 
limited means are so great from the many other 


The demand for a new House of Correction for 
Suffolk County is imperative, and presents another 
problem for solution. The resources of the city 
must be further taxed to supply this demand. I 
sincerely hope that the necessary funds will be 
provided to erect a prison that will be a credit 
to the city; a prison constructed upon the most 
approved plans for the scientific and humane treat- 
ment of its inmates. 


The park police should be placed under control 
of the Board of Police, so that the entire police 
force may be under one head, thus concentrating 
responsibility and avoiding any conflict of authority. 
This change would not increase the number of men 
patrolling the different districts, but the officers 


serving as park police could perform duty in case 
of emergency outside the park limits, which under 
the present arrangement they cannot do. In effect- 
ing this change, the men who are now serving as 
police oflScers under the Park Department should 
be transferred without being required to undergo 
examination. The Police Department is very much 
in need of more commodious headquarters for the 
transaction of its business. The building used for 
headquarters in Pemberton square was formerly a 
dwelling-house, and in the number and size of the 
rooms is inadequate to the demands of the depart- 
ment. I am informed that 103 officers, clerks, and 
other employees are now accommodated at head- 
quarters, and that the average number of visitors 
to headquarters per day is between 700 and 1,000. 
I commend this subject to your consideration. 


In view of the financial condition of the city, and 
the fact that the amount of money received annually 
by way of taxes on the increase in valuation is not 
equal to the annual increase in expenditures, I recom- 
mend that authority be given to the Mayor to appoint, 
subject to confirmation by the Board of Aldermen, a 
paid commission of three citizens of Boston to ex- 
amine into the finances of the city, to report their 



findings in writing within three months of the date 
of their appointment; to recommend what changes, 
if any, are necessary in the laws governing the sink- 
ing-funds, in the laws governing taxation, in the laws 
governing the loan power of the city, and in the gen- 
eral financial methods of the city. The term of oflBce 
of said commissioners should expire when their report 
is presented to the Mayor. The expense necessary for I 
the salaries of the commissioners and for the prosecu- 
tion of their work should be charged to the appro- 
priation for incidental expenses of the City Council. 
The salaries and amounts allowed for expenses of the 
commission should be determined by the Mayor. 


The election machinery of this city is controlled by 
the Mayor, the Board of Aldermen, the City Clerk, 
the Registrars of Voters, and the Superintendent of 
Public Buildings. The details, however, are in charge 
of the City Clerk and the Registrars of Voters. 

To determine contested nomiaations the City Solic- 
itor is also joined with the City Clerk and the Regis- 
trars of Voters. The machinery is, in my opinion, 
too cumbersome, the responsibility too much divided, 
and the expense greater than is necessary. The 
City Clerk, on whose office the greater part of the 
work falls, has without this enough to do to at- 



tend to the routine duties of his office, which is 
the record office of the city. Additional duties, 
entailed by the Australian ballot law and the 
Caucus Act, greatly interfere with and retard the 
routine work of the office, to the disadvantage of 
every person having business there, and at certain 
seasons of the year place upon the City Clerk and 
his assistant a responsibility greater than they 
should be called upon to bear. I think every 
other great city in the country has a Board of 
Election which has charge of the whole election 

I believe that the city of Boston should have a 
Board of Election, consisting of four commissioners, 
selected two from each of the great political 
parties, appointed by the Mayor for a term of five 
years, and subject to removal only for cause by the 
Mayor, with the approval of the Civil Service Com- 
missioners. Said board should have and exercise 
all the powers and duties conferred by law upon 
the Mayor, Board of Aldermen, City Clerk, and 
Registrars of Voters relating to the preparation of 
ballots, the care of ballot-boxes, the registration of 
voters, the recounting of ballots, and determining 
results, and all other matters relating to elections 
in the city, and also the duties of the Registrars 
of Voters in the preparation of the jury list. 


Experience has shown that the Caucus Act needs 
further amending, and when amended all the duties 
now imposed upon the City Clerk or other city 
officers by said act should be performed by the 
Board of Election. 

Some provisions should be made that, in the 
determination of contested nominations and other 
matters where the board is divided equally in its 
decision, a justice of some court should be joined 
to the board to cast the deciding vote. The 
enactment of a law establishing a Board of Elec- 
tion must of necessity abolish the Board of Registrars 
of Voters. 

This matter of a Board of Election I believe to 
be one of the changes most needed in our system of 
government, and one which will meet with the 
approval of every person who has given the matter 
any thought, or who from experience knows of the 
difficulties which arise under the present system. 


Under the present ordinances of the city the Bos- 
ton Water Board has charge of the Water-Supply 
Department only, while another department is main- 
tained for the purpose of assessing rates, making 
contracts for the use of water, receiving applications, 
examining water-fixtures, and supervising the use of 


water. This second department is known as the 
Water-Income Department, and is under the charge 
of the Water Registrar. I do not approve of 
this arrangement. The expense is too great and 
responsibility is divided. I recommend that the 
Water-Income Department be abolished, and that 
all the powers and duties of the Water Registrar 
be given to the Water Board or its successor. 

This consolidation of the two water departments 
into one will save expense, concentrate responsibility, 
and increase efficiency. In 1875 the City Council 
was authorized to unite the Cochituate and Mystic 
Water Boards, and in March, 1876, an ordinance 
to establish the Boston Water Board was passed. 
The Water-Income Department was created by ordi- 
nance. It will be seen, therefore, that the very 
desirable and economical change here recommended 
can be made by ordinance. I commend the matter 
to your careful consideration. 


The departments of the city can be still further 
consolidated by joining under the control of the 
City Engineer, the Engineering and Surveying De- 
partments. Both departments employ men skilled 
in the same profession, and there seems to be 
no necessity for maintaining two separate and dis- 


tinct organizations. I believe this consolidation 
should be made in the interest of economy, and I 
recommend it for your consideration. 


I recommend that the Architect Department be 
abolished. The city of Boston, unlike some of the 
other great cities of the country, has no "board of 
public works," upon whom falls the responsibility for 
the construction of all its buildings. On the con- 
trary, its ailairs are managed by departments. Each 
department should transact all its business, and if 
appropriations are made for new buildings for any 
department, that department should employ an archi- 
tect to draw the necessary plans and supervise the 
work, and should be responsible for the result. 

I believe that competition among architects would 
result in the city's obtaining the services of the 
best men in this profession, that the style and char- 
acter of our public buildings would be improved, and 
that on the whole the work would be performed 
more expeditiously and .at less expense. 

I wish it distinctly understood that in making 
this recommendation I do not reflect on the present 
City Architect, nor on any of his predecessors in 
the office. In fact, I think the present incumbent 
of the office agrees with the recommendation. The 


salary paid the City Architect, $3,500, is not, in 
my judgment, sufficient to command what should 
be the exclusive services of the best talent, while 
the buildings erected by the city are among the 
most expensive and noticeable. That we have in 
the past secured temporarily men of high standing 
in the profession is no guaranty that we shall be 
so fortunate in the future. 

The frequent changes in the office have often 
made it necessary for an incoming architect to com- 
plete the unfinished work of his predecessor in office, 
and where faults in construction and excessive cost 
have resulted it has been difficult to place the 


I believe that those departments now under the 
charge of three-headed commissions can be better 
and more economically managed by one man. In 
every commission of three persons there is danger 
that some one mind stronger than the others will 
govern, and yet the responsibility is so divided that 
it is impossible to hold one of the three responsible 
for the acts of the whole number. This sentiment 
was expressed in my letter of acceptance, and I 
have seen no reason to change my mind. I there- 
fore recommend that the Board of Fire Commis- 
sioners, the Board of Commissioners of Public 


Institutions, and the Boston Water Board be abol- 
ished, and that these departments be intrusted to 
single, responsible heads, with salaries sufficient to 
command the services of the best men. 

Many of these changes will require action by the 
Legislature, while some can be effected by ordinance. 
I shall shortly transmit to the City Council ordi- 
nances to effect the results which can be effected by 
ordinances, if, on consultation with the Law De- 
partment, we shall find that to be the better course. 
I shall present to the Legislature such bills as, on 
consultation with that department, we shall deem 


The importance of the rapid-transit problem be- 
comes more and more apparent, and the demand for 
its solution more imperative each year. Yet there is 
danger that this pressure may be too importunate. 
It is better that the right result should be attained 
within a reasonable time, than that there should be 
undue haste and costly mistakes. A study of the 
work and plans of the Boston Transit Commission 
convinces me that the confidence of the State and 
city in the ability and judgment of its members 
has not been misplaced. They are to be com- 
mended for the care and deliberation with which 
they have acted. Their decision not to begin actual 


constructive work until they have carefully considered 
the many details of this problem and determined the 
cost and probable advantages of the subway which 
they are authorized to buUd^ gives additional strength 
to their conclusions. The citizens of Boston will 
receive with great satisfaction the statement of the 
Transit Commission now for the first time made 
public, that the revised estimates of their engineers 
show that the building of the subway, according to 
their present plans, will not seriously disturb traffic, 
and that the contemplated subways from the junction 
of Shawmut avenue and Tremont street, and from 
the vicinity of Park square to Causeway street, can 
be built within the limit of the appropriation 
specified in the act of the Legislature. 


One of the pressing needs of Charlestown ought 
soon to be satisfied. The broad and substantial 
bridge which is to be built over the Charles 
river, under the direction of the Transit Com- 
mission, and for which appropriations have now 
been made, will add materially to the speed and 
convenience of travel between Charlestown and the 
city proper. The plan now practically settled upon 
by the commission contemplates building this bridge 
sufficiently high to pass over the Fitchburg Rail- 


road tracks on the Charlestown side, and to allow 
the free passage underneath the bridge of barges 
and other mastless craft. It will be a distinct 
public gain to thus enable all the street cars, light 
vehicles, and' eighty thousand people daily crossing 
the river at this poiut to avoid this dangerous 
grade crossing. 


One of the most important duties to be performed 
by the City Council during the present year is 
the new division of the city into wards. The 
law requires that the boundaries of the wards shall 
be so arranged that the wards shall contain, as 
nearly as can be ascertaiaed, and as nearly as 
may be consistent with well-defined limits to each 
ward, equal numbers of legal voters. I believe 
that this important and necessary work will be 
approached with a spirit of fairness and a desire 
to do that which will be for the best interests of 
all our citizens, and without thought of gaining 
party advantages by the changes. This duty must 
be completed before May 1, and as the subject 
will require much study and thought, the work 
should be commenced at once. 

The appended table may prove serviceable to the 
committee having the matter in charge. 


The questions which we must meet and pass upon 
during the year are not political but business ques- 
tions. Let us approach them in a spirit of fairness 
and with a desire to do only that which will be of 
the greatest advantage to the city we love so well. 








10 . . . 

11 . . . 

12 . . . 
18 . . . 

14 . . . 

15 . . . 

16 . . . 

Total 25 


























5,611 I 






• • 















1 ,027 ! 



• • 



•  • 







Pbb Obnt. 




• • 


• • 


























Fn Cbnt, 



CSty Proper . . 
Boxbury . . . 
South Boston 
East Boston . . 
Dorchester . . 
WestRoxbury . 
Brighton . . . 
Charlestown . . 











Wards 6, 7, 8, 9, 10, 11, 12, 16, 17, 18 ... . City Proper. 

" 19, 20, 21, 22 Roxbury. 

^^ 18, 14, 15 South Boston. 

^^ 1, 2 East Boston. 

^^ 24 Dorchester. 

*-^ 28 West Roxbury. 

'^ 26 Brighton. 

'•*' 8, 4, 6 . Charlestown. 



[DOODUSMT 1 — 1896.] 







JANUARY 6, 1896. 



^^^ (coiniiTA.dx M 

m^^ 1680. ^ 

Rockwell and Churchill, City Printers. 


CI ir: 180. 

\ - - - / 

O^U. J/^,^^Xtv^ 


In Boabd of Aldermen, 

January 6, 1896. 

Ordered 9 That His Honor the Mayor be requested to 
furnish the Qty Council with a copy of his Inaugural 
Address, for publication. 

Passed. Sent down for concurrence. 

In Common Council, January 6, 1896. 
A true copy. 


John T. Priest, 

Assistant Oity Cfkrk. 


OerMemen of the City Council: 

Assuming the office of Mayor without previous 
experience in connection with the municipal gov- 
ernment of Boston, and without any intimate 
knowledge of the workings of the administrative 
machinery of the city, I shall only undertake in 
making my inaugural address to deal with some 
subjects of general interest, about which I have 
definite views. 

Entertaining a deep appreciation of the import 
tant and responsible duties devolving on the Mayor 
under the present city charter, and of the honor 
conferred by the citizens of Boston upon the man 
whom they select to exercise this important public 
trust, it will be my endeavor to perform these 
duties with care and firmness. It is a high 
privilege for any man to be the chief public ser- 
vant of half a million people, and to have the 
opportunity of public usefulness which accompanies 
the powers pertaining to such service. Having, 
possibly, a greater reason, even if it be sentimental, 


than any other citizen of Boston for appreciating 
the honor of succeeding the long line of distin- 
guished men' who have occupied the ofl&ce which I 
assume to-day, I have every incentive to endeavor to 
win an honorable place among them. 

Our citizens have the right to expect that the ex- 
tension of the term of the Mayor to two years will 
result in greater independence in the exercise of his 
powers. In a two-year term of office a Mayor can 
make a sufficient public record to enable him, to 
retire with credit, without standing for reelection, 
and he may therefore fairly be expected to perform 
his duties with less reference to a reelection than 
has heretofore been possible. 


It wUl be my desire to promote, by every means 
within my power, the interest of the citizens at 
large in their municipal government, and to invite 

^ their cooperation, in every practicable maimer, in its 
administration and in the consideration of municipal 
problems. The numerous organizations among our 
people, formed for various purposes, ought to play 
an important part in the work of keeping the cit- 
izen in touch with the city government, and 

^ arousing him to a sense of his vital interest in 
its work. It will be my purpose to welcome 
the cooperation of all organizations, of whatever 


character or membership, which are prepared to 
approach mmiicipal questions in a public spirit. 

In some foreign countries organizations of wage- 
earners take a constant, active, and intelligent in- 
terest in mimicipal questions, and some of their 
members occupy important positions and render " 
useful services in connection with city governments. 
It seems to me that similar cooperation may well . 
be encouraged, to a greater extent than it has been • 
in the past, in our American municipalities, and I 
shall endeavor to promote this object. The wage- 
earners of the community furnish a large proportion 
of the scholars in our public schools, and should 
take a more active interest in their management, 
and I trust that the candidacy of a representative 
of this large class of our citizens for the School 
Committee at the recent election indicates a move- 
ment in this direction. 

While the views of any individual citizens or 
organizations can only be given such weight as 
they may be entitled to upon their merits, due 
regard being given to the intelligence which they 
express, I shall deem it my duty as Mayor of the 
city to give as much consideration and attention 
to any well-considered views or plans presented 
by organizations of wage-earners as to those pre- 
sented by any other body of citizens. 

6 matob'8 address. 

merchants' municipal committee. 

In accepting the nomination for the office of 
Major, I expressed the opinion that the most im- 
portant and pressing questions which now concern 
the citizens of Boston relate to the further develop- 
ment of the city as a centre of productive industry, 
— of foreign commerce, domestic trade, and local 
manufacturing and mechanical production, — and that 
the attempt to secure a correct understanding of 
problems of such complexity and magnitude, and 
to take practical municipal action to meet them, 
called for the cooperation of our most broad-minded 
and successful business men. I further stated my 
purpose to invite the important business organiza- 
tions of the city to choose a joint representative 
committee, whose advice and counsel should be 
available to the Mayor, and, through him, to the 
City Council, the Legislature, and the public, on 
business questions generally, and especially those 
relating to commerce, transportation, manufactures, 
and taxation. 

In pursuance of the plan thus suggested, and 
with the object of establishing a strong and per- 
manent connecting link between the city govern- 
ment and the leading business organizations of 
the city, I have already addressed communications 
to the Associated Board of Trade, the Boston 
Chamber of Commerce, the Boston Clearing House 


Association, the Boston Merchants' Association, the 
New England Shoe and Leather Association, and 
the Real Estate Exchange, inviting these bodies to 
appoint delegates to a committee of seven mem- 
bers, which I propose to designate as the 
Merchants' Mmiicipal Committee. 

I have selected these organizations after con- 
sultation with representative business men, beUev- 
ing that each of them is of such a character as 
to entitle it to representation upon such a 
committee, and that, taken in the aggregate, they 
represent the organized business men of the city. 
A small committee of seven members has been 
fixed upon in the belief that it will prove a 
more efficient working organization than a larger 
body. While the Committee may report directly 
upon questions of minor importance, it is con- 
templated that questions of more general interest 
will be submitted to the organizations represented 
in its membership, so that, when any proposition 
submitted has been considered by such organiza- 
tions and favorably acted upon by them, it will 
have the strength of the biisiness men of Boston- 
behind it. I have already received sufficient infor- 
mal assurances of cooperation on the part of the 
officers of nearly all of the above-named organiza- 
tions to make me feel confident that the Committee 
will be organized, on substantially the representative 


basis above outlined, at an early date. The busineas 
for the consideration of this Committee will be sub- 
mitted to it from time to time in official communi- 
cations from the Mayor. I shall at once ask its 
consideration of the subject of the proposed consti- 
tutional limitation of the indebtedness of cities, and 
also of the subject of securing such changes in the 
tax system of the Commonwealth as are necessary 
for promoting the industrial development of the city 
of Boston. While it will only be within my power 
to give to this Committee a semi-official standing, by 
calling upon it to advise the Mayor in the exercise 
of certain broad functions of his office, chiefly per- 
taining to new legislation and outside of his routine 
executive duties, I trust that its value as an auxil- 
iary to the regular machinery of the city govern- 
ment may be recognized by the City Council and by 
the Legislature. 

Whatever may be thought of any plan looking to 
the closer union of the adjacent towns and cities 
with the city of Boston for certain common purposes, 
it will generally be conceded that those who have 
their business interests in Boston, while residing in its 
suburbs, have the same interest as our own citizens 
in everything that pertains to the business develop- 
ment and industrial expansion of the city, and that 
in the consideration of such questions we can enlist* 
their interest with profit to ourselves. As member- 


ship in the above-mentioned organizations is based 
upon a business connection with the city of Boston, 
and not upon residence within ,its limits, the Com- 
mittee will act as a direct means of giving our 
non-resident business men an influence in the con- 
sideration of broad municipal questions. 


While our system of taxation is fixed by State 
legislation, the city of Boston should exert its influ- 
ence in every proper way to secure such amend- 
ments to the tax laws as will bring them more 
into harmony with the needs of a large commercial 
centre, brought into daily competition with cities in 
which taxation is levied ia a manner far less bur- 
densome to business enterprise. 

The Grovemor of the Commonwealth, in his recent 
inaugural address, has recognized the evils of our 
present tax system, and has forcibly pointed out its 
injurious influence upon the industrial development 
of the State. "Our laws," he says, "seem to bear 
oppressively on om* business and industrial enter- 
prises, which should be especially fostered and en- 
couraged as the source from which most of our 
citizens derive their livelihood." He further points 
out that "experience has shown that there is no 
force more potent in bringing industrial development 
than wise and liberal laws of taxation." These words 


have a very direct and important application to the 
city of Boston, and in such application I desire to 
give them my hearty endorsement. The city gov- 
emment of Boston and the representatives of the 
city in the Legislature can in no way more effeo- 
tively promote the development of the trade and 
the manufacturing and mechanical industries of Bos- 
ton than by using every endeavor to secure more 
liberal tax laws, and thereby enable our people to 
meet the competition of their commercial and indus- 
trial rivals in other States. As soon as the Mer- 
chants' Municipal Committee, above referred to, is 
organized, I shall invite it to take up the subject of 
securing such needed changes in our tax laws, and 
I trust that the influence of the Governor of the 
Commonwealth, of the Speaker of the House of Rep- 
resentatives, — who, in reassuming that position, ex- 
pressed views similar to those of the Governor, — of 
the Mayor of the city of Boston, and of the busi- 
ness organizations of the city, supplemented, as I 
trust may be the case, by the City Council, may be 
effectively united upon some practical and compre- 
hensive plan, which will secure general support. 

While I shall be ready to cooperate in any 
movement which may tend to mitigate the evils 
caused by our present unscientific and defective 
system, I desire to express my personal convic- 
tion that in order to accomplish any far-reaching 


benefits, false theories of taxation must be absolutely 
abandoned. I believe that a large majority of the 
business men of Boston are now ready to support 
a movement to place upon real estate all taxes 
other than those levied upon the franchises of 
quasi-public corporations, and upon the estates of 
deceased persons, and that the real-estate interests 
would support the same policy. Taxation levied 
upon real estate distributes ' itself through the 
community at least as equitably as it can be dis- 
tributed under any system, whUe it has the great 
advantages of perfect simplicity, impossibility of 
evasion, and absolute freedom for business develop- 

The wage-earners, who constitute such a large 
majority of our population, have every interest in 
favoring a system which would result in greatly 
stimulating enterprise, and enlarging the field for 
the profitable employment of labor in this city. 
That such a system of taxation is best adapted 
to the wants of a eonnnunity ,.ch a, ou. is'oot 
only supported by theoretical reasoning, but demon- 
strated by the practical experience of such great 
commercial and industrial cities as New York and 
Philadelphia. The importance of the object is so 
great, that, if the union of the necessary forces 
can be effected, even the necessity of securing an 
amendment to the Constitution should not be 


allowed to stand in the way of making the effort. 
Such a Ynovement should be based, not upon an 
effort to protect some of our citizens from double 
taxation, but simply upon the broad ground that 
a system of taxation laying the burden only upon 
property which cannot move away will prove a 
* benefit to all classes in the community, give an 
absolutely free field for business expansion, and, 
most of all, help those who are dependent for 
their livelihood upon commercial, mechanical, and 
other industrial development. 


The recent acquirement by the New York, New 
Haven, & Hartford Railroad Company, lessee of the 
Old Colony and Boston & Providence railroad 
systems, of the control of the New England Rail- 
road, brings up for immediate consideration the 
pressing question of the readjustment of freight 
and passenger terminals on the south side of the 
city. The business interests of Boston, in my 
opinion, would be as greatly benefited by some such 
union of terminals and concentration of freight and 
passenger business on the part of the four railroads 
entering the city on the south -side, as by that which 
has already taken place, with such beneficial results, 
on the part of the railroads entering the city from 
.the north side. It is of great importance, and 


entirely practicable, that the freight business of the 
three above-named railroads, now under a com- 
mon management, should, at an early date, be con- 
centrated at a single point, easily accessible from 
the business section of the city, and with ample 
room for terminal facilities, not only for the present 
but for the future. 

The present freight yards of the New England 
Bailroad Company at South Boston seem to me to 
fulfil these requirements better than any other 
available locality, and I believe that it would be 
of great advantage to our commercial interests to 
have the freight which is now always crowded, 
and often delayed, at the present freight stations 
of the Old Colony and Boston & Providence Rail- 
roads, handled at the South Boston terminals. 

Such a transfer of freight business would consider- 
ably relieve the congestion of the crowded streets 
through which the trucking to and from these 
stations is now mainly conducted. Plans have 
already been made for the track connections neces- 
sary to bring about this result. But in the opinion 
of the management of these railroads it is necessary, 
in order to enable this concentration of freight at 
the South Boston yards to be carried out, that pres- 
ent grade crossings over the tracks of the New 
England Railroad at South Boston should be abol- 
ished, and that future grade crossings over these 


tracks should be prohibited by law. If the New 
England Eailroad Company uses the Old Colony 
station, or a new union station, the tracks and 
terminals west of A street can be discontinued, 
and there will be only two existing grade crossings 
to abolish, namely, those on Congress street and on 
West First street. Aside from its connection with 
the freight terminals already mentioned, the aboli- 
tion of the grade crossing on Congress street, and 
the completion of this street, or of a new street par- 
allel to it, as a thoroughfare for travel, would be 
a great benefit to a large section of South Boston 
by reducing its transit distance from the business 
centre. If the abolition of this grade crossing will 
make it possible to realize the great advantages of 
securing a concentration of the freight busineas 
above-mentioned at South Boston, in addition to its 
other advantages above referred to, I should be 
decidedly in favor of it, if the work can be done 
at a reasonable expense to the city. I also believe 
that the city should give its assent to such proper 
legislation as might be found necessary to protect 
these terminals from having streets laid out at any 
future time to cross them at grade. 

While a transfer of the freight business from 
the Old Colony and Providence stations would afford 
much needed relief to the present congestion of 
passenger business at both of these terminals, a new 


union passenger station, for the use of at least the 
Old Colony and New England Railroads, is a neces- 
sity of the immediate future. 

I believe that in accordance with the findmgs of' 
the Rapid Transit Commission of 1891 it will ulti- 
mately be found desirable to concentrate all of the 
passenger traJBic upon the south side of the city in 
one union station, to be located upon or near the 
sites of the present Old Colony and Boston & 
Albany stations on Ejieeland street. It seems to * 
me worthy of serious consideration whether it will 
not be advisable for the city government to take 
advantage of the present new conditions of railroad 
management by endeavoring to secure, if possible, 
the passage of compulsory legislation to effect this 
great improvement. The magnitude of the interests 
involved, and the need of action upon a comprehen- 
sive plan, may be appreciated from the fact that 
584 trains a day now pass in or out of the four 
passenger stations on the south side of the city, 
carrying 80,000 people on an average, while on the 
north side of the city there are only 540 trains a 
day entering or leaving the Union station which has 
already been provided. 

Most of the grade crossings within the city limits 
have already been abolished. The early abolition 
of the grade crossing on Dorchester avenue over the 
Old Colony Railroad tracks is very desirable, and I 


shall press action on the part of the city to attain 
this object as soon as possible. The management 
of this railroad is desirous of carrying out this im- 
portant improvement upon any plan which seems to 
it to be practicable and not to involve unreasonable 
expense. The plans thus far prepared have not 
proved mutually satisfactory to the city and to the 
railroad company, but I trust that some plan may 
shortly be perfected and agreed upon which may 
enable this work to be carried out by voluntary 
cooperation between them. The grade crossings in 
the Charlestown district are in a fair way of being 
soon discontinued, and I am informed that the 
railroads are working vigorously to that end in 
harmony with the officials of the city. I am in 
cordial sympathy with the earnest desire of the 
citizens of this district that these grade crossings 
be speedily removed, and I shall endeavor to ac- 
complish this object as soon as possible, so far 
as the action of the city government can be instru- 
mental in effecting it. The question of securing 
the abolition of grade crossings in the East Boston 
district is more difficult, but the recent action of 
the Board of Aldermen in petitioning therefor has 
led to an energetic attempt to solve the problem, 
and if the citizens of this district can agree upon a 
proper plan I shall be glad to give it my active 
support. The remaining grade crossings on the 


lines of the Old Colony and the New England Rail- 
roads should be discontinued as rapidly as financial 
considerations will permit, and the recent union of 
management between the New England and the 
New York, New Haven, & Hartford Railroads should 
facilitate the accomplishment of this desirable 


The problem of devising a better system for 
the election of aldermen, and securing its adoption 
by the Legislature, is one which should receive 
our earnest attention. Within recent years we 
have tried successively election by districts, election 
at large by plurality vote, and the present system 
of election at large by restricted vote, insuring 
minority representation. I believe that in the 
general opinion of our citizens, and certainly in 
my own, the present system is decidedly the worst 
of the three, owing to the fact that it makes a 
nomination by either of the two leading political 
parties absolutely insure an election so far as five 
out of the seven candidates whom it has been 
customary to nominate are concerned. 

If the minority representation feature of the 
present law is to be maintained, I think that 
some advantage at least would be gained by 
requiring any political party which placed a ticket 



in the field to nominate a full ticket of twelve 
candidates. I doubt, however, whether the pres- 
ent system would produce results satisfactory to 
the citizens generally, or to the members of either 
of the leading political parties, even with this 
amendment. I believe that we should either re- 
turn to the system of election at large by simple 
plurality vote, thus securing at least the benefits 
of undivided party responsibility, or else make at 
least a trial of some system of proportional 
representation. While much can be said for the 
latter system from the standpoint of political 
theory, I think it decidedly questionable whether it 
would work satisfactorily in practice, and whether 
it would not result in establishing the representation 
of classes, and in substituting for a somewhat coher- 
ent majority, — upon which some responsibility for 
the enactment of necessary municipal legislation can 
be placed, — a number of small groups or indi- 
viduals, representing so many constituencies, of such 
a varying character, that it would be extremely 
difiicult to secure harmony of action or proper re- 
sponsibility for legislation. Proportional representation 
might also open the door for even more log-rolling 
and trading than takes place under the present sys- 
tem, and increase the friction between the executive 
and legislative branches of the city government. 
But whether it is better to return to the simple 


plurality system, or to try the experiment of 
proportional representation, it seems to me that it 
would be advisable to elect the members of the 
board for a term of at least two years, half of 
their number going out of office each year. We 
should thus reduce the excessive number of candi- 
dates, which now tends to the confusion of the 
voter and prevents due weight from being given 
to the qualifications of individual candidates. 


The total appropriations for the current expenses 
of the city for the fiscal year ending January 31, 
1896, amounted to $14,013,043. The actual current 
expenditures of the city to January 1, 1896, plus 
the additional expenditures through. January 31, 
1896, as estimated by the City Auditor, amount 
to the sum of $14,326,544, making an estimated 
excess of expenditures over appropriations for the 
year 1895-96 of $313,501; this amount the City 
Auditor estimates will be provided by the surplus 
income of the city in excess of the estimates of 
general revenue upon which the annual appropriation 
order for the current fiscal year was based. The 
total department estimates for current expenditures 
for the fiscal year beginning February 1, 1896, as 
received by the City Auditor, amount to the sum 
of $15,449,260, or an excess of $1,436,217 over 



the appropriations for the current fiscal year, and 
an excess of $1,122,716 over the actual and 
estimated current expenditures for this year. Among 
these estimated increases over the expenditures of 
the present fiscal year are the following : 











Institutions .... 


Or a total of . . . 


in these six departments alone. 

I have not included in these estimates the sum of 
$440,000 requested by the School Committee for the 
purpose of providing proper sanitary and ventilating 
appliances, fire-escapes, etc., in existing school-houses, 
as I believe that this sum, or such portion of it as 
may be foimd to be necessary, may properly be pro- 
vided by loan. 

To meet these demands for increased appropria- 
tions, the increase in the resources of the city from 
the proceeds of the $9 tax, as limited by law, 
amounts, according to the figures of the City Auditor, 
to only $232,000. According to the estimates of 
the general revenue of the city made up by the City 


Auditor, it seems probable that this will not exceed 
the general revenue for the current fiscal year, while 
it may fall below it. The problem which will there- 
fore confront the city government in making the 
appropriations for the fiscal year 1896-97 will be that 
of reducing the above-mentioned additional demands 
upon the city treasury for $1,122,716, to the simi 
of about $232,000. 

It must be borne in mind that even then no pro- 
vision is made for any excess of expenditures over 
appropriations, while such excess will amount during 
the present fiscal year, as above stated, to $313,501, 
and past experience shows that it is extremely diffi- 
cult, if not impossible, to avoid some excess of 
expenditures over appropriations. In fact, there is 
some reason to believe that even the above state- 
ment represents the financial position of the city in 
too favorable a light. It is obvious from this brief 
and general statement that there must be rigid econ- 
omy in the current expenditures of the city, and 
that the Mayor and the City Council, in making up 
the annual appropriation order, will have an unusu- 
ally difficult task before them. 

While I shall not imdertake at the present time 
to anticipate the specific recommendations with regard 
to appropriations for the coming fiscal year which I 
shall later transmit to the City Council, I think it 
proper at the present time to call your attention to 


one question in connection with the largest increase 
requested by any department, namely, that for the 
Board of Police, which it seems to me should re- 
ceive the early and earnest consideration of the City 

It will be noticed that the increased appropriation 
requested for this department, amounting to $261,196, 
considerably more than exhausts the total estimated 
increase in the net income of the city avaOable for 
current expenditures for the coming fiscal year, and 
represents an increase of 18 per cent, over the 
appropriations for this department for the current 
fiscal year. While it is true that a comparatively 
small part of this increase is attributable to the 
transfer of the park police to this department, it 
represents, in my opinion, an unwarrantable addition 
to the expenses of a single department in one year, 
when considered from the standpoint of the general 
financial position of the city. 

In dealing with the estimate of the Police Depart- 
ment, the City Coimcil may find itself seriously em- 
barrassed by the provision of chapter 323 of the Acts 
of 1895, which gives this board the unique power of 
issuing its requisitions upon the city treasury, with- 
out reference to the appropriations made by the City 
Council. While I desire to avoid raising an issue at 
the present time, over the question of the justice or 
advisability of the system of State control of the 


Police Department which has been established for this 
city, but on the contrary am disposed to recognize 
the existence of that system as an accepted fact 
which under present conditions there is no possi- 
bility of changing, it seems to me necessary that 
the city government of Boston should ask the Legis- 
lature to restrict in some manner the above-men- 
tioned authority of the Board of Police, and at least 
to limit to some reasonable percentage, corresponding 
with the growth of the financial resources of the 
city, the right of this board to increase from year 
to year its requisitions upon the city treasury. 

While I shall try to come to some understanding 
with this board in regard to the increase requested 
by them, and to induce them to recognize the fact 
that the state of the finances of the city prohibits 
such a large increase in any one department, it 
must nevertheless be recognized that, by adhering 
to its estimate, this board has the power under 
the present law to cause great embarrassment to 
the city treasury during the coming year, and to 
render impossible urgently demanded increases of 
expenditure in other departments of the city gov- 

The existence of authority of this character is en- 
tirely inconsistent with the idea of placing upon the 
Mayor, as intended by the city charter, the entire 
responsibility for regulating the general finances of 


the city, and keeping its expenditures within the 
limit prescribed by the State laws, without injurious 
curtailment of the work of any department. I 
recommend that the City Council petition the Legis- 
lature for such a reasonable amendment of the 
above-mentioned provision of law as, while not in- 
consistent with the general purposes of the act 
establishing the Board of Police, will serve to 
afford proper and necessary protection to the city 

In this connection I think it proper to call at- 
tention to the fact that $140,000 of the estimated 
increase in the Lamp Department, and $100,000 of 
the estimated increase in the Elections Department, 
are called for in compliance with laws passed by 
the last Legislature, requiring respectively the insu- 
lation of poles upon which electric-light wires are 
carried, and a new registration of the voters of the 
city. It seems to me somewhat of a hardship that 
the city government should be embarrassed in its 
efforts to live within the tax limit by legislation, of 
at least doubtful necessity, which places upon it 
such a considerable additional burden without pro- 
viding any additional resources out of which it may 
be met. 

According to the statement of the Sinking-Funds 
Commissioners, the estimated amoimt which the city 
will be able to borrow during the present municipal 


year within the debt limit is $1,968,245. This sum 
is in addition to the sxun of 1 500,000, which the 
School Committee was authorized, by chapter 408 of 
the Acts of 1895, to borrow during the present year 
within the debt limit, which is classed in the City 
Auditor's statement as a loan authorized but not 
negotiated. This sum should, in my opinion, be 
ample to provide for all the additional loans, not 
already authorized by law, which it is necessary or 
desirable that the city should incur during the 
coming year, unless possibly for some new under- 
taking which is expected to be self-supporting, or 
for the purpose of completing some work to which 
the city is already committed and which has been 
insufficiently provided for by loans outside the debt 


One of the most important duties of the city ad- 
ministration is to secure the proper management of 
the numerous and important public institutions 
under its charge. Such management should be pro- 
gressive, humane, and scientific, and, at the same 
time, as economical as possible, in view of the 
heavy financial burden which the support of these 
institutions imposes on the community. Fortunately 
experience proves that true economy is consistent 
with scientific humanity. It should constantly be 
kept in mind that the main object of every public 


institution, whether charitable or penal, should be 
the improvement of its inmates, morally, mentally, 
and physically, in order that as large a proportion 
of them as possible may be returned to the com- 
munity at large better fitted to meet the conditions 
of life. Even in penal institutions the idea that 
reformation and not punishment is the object should 
be constantly borne in mind. 

The public institutions of the city naturally divide 
themselves into two great classes, — penal and char- 
itable. Charitable institutions are further subdivided 
into almshouses and lunatic hospitals. Institutions 
for children may also be regarded as a class by 
themselves. The one most important principle per- 
taining to the management of public institutions, 
now generally accepted, is the scientific classification 
of inmates. The ideal would be to deal with each 
individual inmate, adapting the treatment to the 
needs of his particular case. While this ideal is not 
at present possible of attainment, it can at least be 
approached by such classification as will group to- 
gether, in sufficiently small bodies, those who 
require about the same methods of treatment. 

After giving considerable thought to the subject, 
and getting the views of many persons who have 
given close study to the subject for years, I believe 
that this principle can best be applied to the public 
institutions of the city by separating the lunatic 


hospitals and the ahnshooises, — and possibly, also, the 
institutions for children not of a reformatory chaiv 
acter, — from the penal and reformatory institutions, 
and placing the former under two, or three, sepa- 
rate boards of unpaid trustees, thus adopting a 
system which has been found to secure the best 
results in the public institutions of the State. I 
would not advocate, however, removing the penal 
institutions from the control of the single Commis- 
sioner of Public Institutions. While I do not desire 
to pass any judgment upon the administration of 
the present Commissioner of Public Institutions with- 
out larger knowledge of his work, to depreciate 
any improvement which niay have been effected in 
these institutions, or to discourage any efforts to 
secure additional improvement under the present 
administrative machinery, I shall still deem it 
my duty to cooperate in any well-considered plan 
to secure legislation for effecting the above-men- 
tioned separation of institutions into two or more 

The pressing necessity for the construction of a 
new building for the House of Correction of Suffolk 
county is generally admitted, and I shall join in 
an endeavor to secure the necessary legislation for 
this purpose. I am heartily in sympathy with the 
idea that in connection with the erection of a 
new building, the House of Correction should be 


given largely the character of a reformatory, rather 
than that of a purely correctional institution, and 
any future legislation should embody this view. 


The subject of the building operations of the city 
is one which calls for immediate action by the 
Mayor. Under the provisions of the act of last 
year revising the city charter, the office of City 
Architect was abolished, and now when a new build- 
ing is to be erected the head of that department 
of the city government for whose use it is in- 
tended selects the architect, and has charge of the 
construction; the selection of the architect and the 
adoption of plans is, however, made subject to 
the approval of the Mayor. Understanding that it 
was the intention of the Legislature to make this 
required approval not merely a formal administra- 
tive act, but an effective check upon the building 
operations of the city, and to place upon the Mayor 
the final responsibility of seeing that municipal 
architecture and construction is of a proper char- 
acter and intrusted to proper hands, I shall en- 
deavor to use this power for the accomplishment 
of these objects. A proper performance of the duty 
of approving plans requires the Mayor to have at 
his command expert professional advice, and it 
seems to me that this can best be provided by 


engaging the services of some architect of recog- 
nized qualification, to be the regular professional 
adviser of the Mayor in all matters pertaining to 
building operations, and to be paid out of the con- 
tingent firnd of the Mayor's office, or out of the 
appropriations for the various buildings. I shall 
accordinirly desimate such a consulting; architect as 
soon aa^ible 

After an architect has been selected, and plans 
have been prepared, the responsibility for the mak- 
ing of the building contract and for the actual 
erection of the building rests, under the act above 
mentioned and other laws, upon the head of the 
department for the use of which the building is 
intended ; and this means, imder our charter, that the 
final responsibility rests upon the Mayor. The act 
further provides (in section 22 of chapter 449 of 
the Acts of 1895) that "any building not for the 
use of any department shall be built by such of 
the heads of departments or other officers appointed 
by the Mayor as the Mayor shall from time to 
time determine." 

I am advised by the Corporation Counsel that the 
School Committee is not a " department " within 
the meaning of this provision, and that the actual 
building of new school-houses, including the making 
of the contracts therefor, therefore comes, not under 
the School Committee, but under such head of a 


department or other officer appointed by the Mayor 
as he may designate for the purpose. According 
to this construction, the specific provisions of chapter 
408 of the *Acts of 1885, giving the School Commit- 
tee full charge of the building operations relating to 
schools, are modified by the provision of the subse- 
quent act revising the city charter above referred 
to. I shall deem it my duty to exercise this power, 
and to designate a suitable officer to make future 
contracts for school buildings, as well as to see 
that the contracts already made for the school 
buildings now being erected are properly carried out. 


The subject of proper sanitary and ventilating 

arrangements in our pubUc schools is one of great 
interest to large numbers of our citizens and of 
pressing public importance. While it seems to me 
unlikely that such a large sum as $440,000, re- 
quested by the School Committee for the purpose, is 
required at the present time to make proper pro- 
visions of this character in our present school build- 
ings, and to conform to the requirements of State 
legislation, I believe that whatever expenditure may 
be found necessary for this purpose should be 
promptly provided for by means of a loan, — a part 
of which, it seems to me, may well be taken out 
of the $500,000 allowed to the School Committee, 


within the debt limit, for the erection of new school- 
houses during the present year, by securing such an 
amendment of chapter 408 of the Acts of 1895 
as may be necessary for that purpose. 

Whatever may be the necessity for the erection 
of new school-houses, I believe that the proper sani- 
tary and ventilatiQg arrangements in school-houses, 
now attended by such large numbers of pupUs, is a 
matter of yet greater necessity, and should be first 
provided for. As this matter may involve such a 
large expense, it seems to me that the money therefor 
should not be appropriated merely upon the request 
of the School Committee, but that an independent 
enquiry should be made by the city government, 
through persons having technical knowledge and 
professional experience. I, therefore, propose to 
cause an immediate and thorough examination to be 
made by experts into the present condition of the 
school-houses, and a report to be made by them 
thereon, and upon the proper methods of ventilation 
and sanitation, with the probable cost of their 
adoption. Such an investigation seems to be a 
necessity in order to enable those responsible for 
the general finances of the city to act intelligently 
upon the matter. When such a report has been 
made, I shall, as before stated, cooperate in every 
way in my power with the School Committee in an 
endeavor to secure the speedy appropriation of the 


necessary money, and its application in a manner 
which will prove effectual in supplying the present 


The work of the Boston Transit Commission is 
progressing satisfactorily and as rapidly as practi- 
cable. Whatever differences of opinion may exist 
among our citizens as to the superiority of the 
subway plan over others that have been proposed at 
various times, as a means of relieving the congestion 
of travel in the down-town district of the city, or 
as to the justification for the large expenditure 
which the subway calls for, I believe that under 
the direction of the present members of the Transit 
Commission this work is being planned with great 
care and intelligence, and that there is every reason 
to expect that whatever advantages it is possible to 
secure under this plan will be fully attained. It is 
gratifying to learn that the commission expects to 
have a portion of the subway now under construc- 
tion in use as far as Park street by next fall. 

There is every reason to believe that it will be 
possible for the Transit Commission, under the 
authority granted to it, to make such a contract for 
the use of the subway as will prevent the interest 
and sinking-fund requirements of the loans incurred 
for its construction from being any burden upon the 
general finances of the city. 


I trust that this question will be treated by 
the commission in a comprehensive manner^ with 
a recognition of the fact that a contract with 
the West End Street Railway Company, giving 
it a fixed right to the use of the subway for 
a term of years, has an important practical bear- 
ing upon its rights in the streets. I am in 
hearty sympathy with the recommendation of the 
Governor in his recent inaugural, that cities and 
towns should be given authority to make con- 
tracts with street railway companies for the use 
of their streets; and I believe that the contract 
between the Transit Commission and this company 
for the use of the subway should either be of 
such a comprehensive nature that it will be 
acceptable to the city government, as establishing 
the basis of general contract relations between 
the city and this company, or else should be 
entered into contemporaneously with, and as a 
part of, a comprehensive contract between the 
city and this company, covering all of its loca- 
tions and other rights. 

The work of the Transit Commission in entering 
upon the construction of a new bridge to Charles- 
town has been unavoidably delayed through a 
variety of causes. It was found necessary to 
abandon the idea of a drawless bridge. After the 
passage of the law authorizing the widening of 


Charlestown street, near the close of the last 
legislative session, and in harmony with such law, 
the Transit Commission fixed the location for the 
new bridge, on the 30th of July last, just westerly 
of the present Charles-river bridge, so that Charles- 
town street, when widened, will be a direct 
approach to the bridge. After the preparation of 
the necessary plans, the license of the Harbor and 
W ConuliLr, U> build the bridge ™ ^^ 
at the end of the month of November, and the 
necessary approval of the Secretary of War was 
granted a month later. All necessary legal 
authority having now been obtained, the work of 
constructing this important improvement is in a 
position to be proceeded with as fast as possible. 


The city has already incurred an expense of 
over $350,000 for the purchase of land for the 
projected Strandway from the Marine park, South 
Boston, to Dorchester bay. The delay on the 
part of the city in beginning the construction of 
this important improvement has afforded, in my 
opinion, reasonable ground for disappointment and 
dissatisfaction on the part of the people of South 
Boston generally, and particularly of those who 
own land adjacent to the proposed Strandway, 
which cannot be developed or properly utilized 


while the shore land taken by the Park Commis- 
sion is allowed to remain in its original condi- 

The last city government provided a loan of 
$100,000 inside the debt limit for beginning work 
upon the Strandway. The Park Commissioners 
propose to begin construction at a point adjacent 
to the promenade pier and to continue it along 
the shore in a westerly direction from this point. 
I am informed by the Park Commissioners that 
an additional sum of $200,000 will complete the 
Strandway (except the final surface finishing, which 
cannot be done until the land has been allowed 
to settle for at least a year) as far as I street, 
thus affording nearly a mile of completed beach 
front. The Commissioners state that this sum is 
all which they can profitably expend during the 
coming year, and as this will go so far toward 
completing the Strandway as a local improvement, 
leaving only the important matter of connecting 
it with Dorchester to be subsequently provided 
for, I believe that the provision of this sum out 
of loans within the debt limit is all that is 
necessary for the present year, and I shall recom- 
mend such an appropriation. 

Anticipating the completion of this connection, 
it seems to me that some legislation should be 
secured which will provide for the filling of the 


flats which will be left inside of the line of 
the projected parkway from the point where it 
leaves the South Boston shore line to the point where 
it joins the Dorchester shore. The expense of con- 
structing this parkway would be greatly diminished 
if the filling could be done in conjimction with the 
owners of these flats. 


The maintaining of public baths, open all the 
year, seems to me to be a project for encouraging 
social and sanitary improvement by municipal action 
which promises large returns for a comparatively 
small expenditure, and I am of opinion that the 
experiment of establishing such a public bath in a 
suitable locality should be tried. I shall recom- 
mend such an appropriation, to be provided for 
by loan. 


The establishment of a Board of Elections, and 
the vesting iu this board of all of the powers 
and duties relating to caucuses and elections 
formerly divided among the City Clerk, the Regis- 
trars of Voters, the Superintendent of Public 
Buildings, the Ballot Law Commission, and the 
Board of Aldermen, has resulted in greater sim- 
plicity of machinery, and more responsible and 
effective administration. It is the opinion of the 


present members of the board that, upon a fair 
comparison of expenses, the present system will 
also show greater economy. 

In this connection I desire to suggest that, as 
the regulation of caucuses by law has already been 
carried so far in this city, it is worthy of serious 
consideration whether the policy should not be 
further extended to its logical end: this would 
place party caucuses, both as to the appointment 
and payment of their officers, and as to the laws 
regulating the holding of caucuses, upon the same 
footing as elections. A considerable expense is now 
involved in the partial regulation of caucuses now 
in operation, and there seems to be much force in 
the argument that it would be wise to incur the 
additional expense necessary to make the regulation 
complete and effectual. 


The considerable changes which have been effected 
during the last five years, by the action both 
of the State Legislature and of the City Council, in 
the organization, and in the powers and duties, of 
the executive branch of the city government, seem 
to me to make the duty of securing the most 
effective possible administration of more present 
importance than that of securing further organic 
changes. Progress toward the best possible munic- 


ipal government cannot always be best promoted 
by further changes in the scheme of administra. 
tion. There is a limit to organic improvements. 
The city charter of Boston in its present form 
probably corresponds more nearly to the adminis- 
trative principles generally accepted by those who 
have given the most careful thought and study to 
the problem of American municipal government than 
the charter of any other large city in the country. 
While there must always be a broad field for 
minor improvements in municipal machinery, the 
main principles which have been worked out and 
practically applied to the executive government of 
this city during the past ten years are generally 
recognized as sound and correct. The most un- 
portant work of the unmediate future is, therefore, 
that of securing efficient, honest, and economical 
administration under the existing provisions of the 
laws and ordinances, which at least make the 
attainment of this object more possible than it has 
been in the past. In the performance of this 
important duty, it will be my purpose not only to 
maintain, but to advance, the existing standard of 
capacity and efficiency among the officials and 
employes of the executive branch of the govern- 
ment. The citizens of Boston are entitled to a 
full and adequate return for the salaries and wages 
— more liberal, in many instances, than those given 


by private employers for similar services — paid to 
their mmiicipal servants, and I shall try to see 
that such return is received. 

While experience does not yet warrant the belief 
that it is possible in American municipal govern- 
ments to obtain as large a return for money 
expended as is secured by private individuals and 
corporations, it will nevertheless be my constant 
endeavor to make such return as large as possible. 
So far as the purchase of supplies is concerned, 
the city ought to realize as favorable results as 
private corporations making purchases of the same 
magnitude and character. 

In making appointments to office, I shall make 
every effort to secure higher qualifications for the 
service of the city. 

Oentlemen of the City CowncU: I trust that our 
official relations during the coming year may be 
pleasant and satisfactory. In the discharge of the 
important duties intrusted to us by our fellow-citi- 
zens, may we be strengthened and supported by a 
constant sense of the Divine guidance. 













JANUARY 4, 1897. 


^A (C<0I^a)IITAi3D. ^> 
^/. 1©3©. ^^ 


KocKWEij. AND Churchill, City Printers. 



OCI 13 183L 

'J y 


'-^ . 


In Board of Aldermen, 

elanuary 4, 1897. 

Ordered^ That His Honor the Mayor be requested to 
furnish for publication a copy of the address delivered 
by him this day before the City Council. 
Passed. Sent down for concurrence. 

Perue a. Dyar, 


In Common Council, January 7, 1897. 


A true copy. 

Attest : 

Joseph A. Conry, 


J. M. Galvin, 

City Clerk. 


Financial Statements 


Public Baths 




Southern Union Station 


South Boston Freight Terminals 
The Strandway 


Grade Crossings . . . . 


Merchants' Municipal Committee 




Reorganization of City Council . 


A Statistical Department 


Election Department . '* . 




New Register of Voters ) . 


Regulation of Caucuses ' . 



Public Institutions . / . 


City Hospital .... 




Printing Department 


Electrical Construction 


Wire Department . 


Building 'Department 



Building Operations 


Park Department 


Street Department . 


Paving Division 


Sewer Division . . . 


Sanitary Division . . . 


Street-Cleaning Division • . 


Bridge Division . . • • 


Ferries . . . . ' . 





Street Watering 84 

Franchises in Streets 



Street Changes 



Street Laying-Out Department 



Charlestown Bridge 




Cambridge Bridges . 



Water Department 




Fire Department 




Harbor Improvement 



Harbor Defences 



Financial Policies . 



West End Street Railway 


. 105 

Mount Hope Cemetery . 



Public Lavatories . 



A Municipal Laboratory 



Unsanitary Tenements . 

» 1 



Randidge Bequest .... 




Franklin Fund .... 




New Statues 




Copley Square 




Rifle Range 




Free Public Concerts 




Islands in Harbor .... 




Care of Trees 




Publication of Advertisements . 




Faneuil Hall 








State Lecjislatiox .... 




Executive Organization 






Oentlemen of the City Council: 

Notwithstanding the fact that, for the first time 
in the history of Boston, there is no inauguration 
of a mayor at the beginning of the municipal 
year, the usual executive address is doubtless 
expected. I can undertake to cover but a small 
portion of the extensive field of our municipal 
work, and that only in the most general man- 
ner. It has, however, seemed to me proper that, 
in the middle of a two-year term of office, I 
should refer, at somewhat greater length than has 
iDeen customary, to some of the executive and 
legislative work of the last year, indicate some 
of the progress made, and present for your con- 
sideration various ideas and suggestions looking 
to future action. 


The debt statement is as follows: 

Gross debt December 31, 1895 . $64,513,380 77 
Gross debt December 31, 1896 . 69,480,840 48 

Increase during the year . . . $4,967,459 71 


Net debt December 31, 1895 . $39,465,039 55 
Net debt December 31, 189G . 43,727,721 47 

Increase during the year . . $4,262,681 92 

Increase in sinking funds and other 

redemption funds during the year, $704,777 79 

Total amount of debt issued during 

1896, both inside and outside of 

debt limit ..... $7,321,000 00 
Funded debt paid during the year, 2,353,540 29 

Increase in gross debt, as above . $4,967,459 71 

Loans inside the debt limit issued 

during the year 1896 . . $3,096,000 
Of this amount loans 

authorized in 1896 

represented . . $753,500 
Loans authorized prior 

to 1896 . . . 1,842,500 
Loans inside of debt 

limit for constiuc- 

tion of new school- 
houses, under chap. 

408 of 1895 . . 500,000 



The loans outside the debt limit issued during 
1896 were the following: 

Subway and other rapid-transit pur- 
poses $2,250,000 

Blue Hill, Columbus, Huntington, 

and Commonwealth avenues . 1,000,000 

Layijig out and construction of asses- 
sable streets ..... 850,000 

Improvement of Stony brook . . 100,000 

Improved ferry facilities . . . 25,000 

Total $4,225,000 

The borrowing capacity of the city within the 
debt limit for the municipal year 1896 was 
$2,053,311. The loans authorized by the city 
council during the year exhausted the whole 
of this borrowing capacity except the sum of 

The loans authorized inside the debt limit were 
foi' the following purposes: 

Street improvements, by wards, $25,000 
for each ward, except $50,000 for 
ward 23 $650,000 

Ventilation and sanitation improve- 
ments in school-houses . . . 300,000 

Sewers 179,500 

^ew general registration of voters . 100,000 


North End playground 

Public bath-house 

Commonwealth avenue, to continue 
construction .... 

City hospital, new buildings and fur- 
nishing ..... 

City hospital, electric-light plant 

Widening and construction of streets 

Institutions department, new construc- 
tion work ..... 

Improvements in city hall and old 
court house .... 

Massachusetts Historical Society build- 
ing, on account of purchase 

New electrical consti-uction work 

Tremont street, repaving south of 
Lenox street .... 

West Roxbury playground . 

New fire-boat .... 

Fire department, salt-water pipe service, 

Improvements at Mt. Hope cemetery 

Balance, for miscellaneous purposes 
chiefly local street improvements 










The total loans outside of the debt limit author- 
ized by the city council during 1896 were the 
following : 


Laying out and construction of 

assessable streets, un^er chap. 

323 of 1891 .... $500,000 

Improved ferry facilities, under 

chap. 435 of 1895 . . . 500,000 

Improvements in Stony brook, 

under chap. 530 of 1896 . . 500,000 

Construction work on public 

pai'ks, under chap. 453 of 

3896 . . . . . . 1,000,000 

Total 12,500,000 

Total loans, inside and outside of 
debt limit, both authorized and 
issued during 1896, exclusive of 
loans for subway and assessable 
avenues and streets . . . $878,500 

The valuation of property upon which the debt 
and tax limits are based has increased $25,259,492 
since last year. The borrowing capacity of the 
city for the coming year, however, will only be 
•about $1,800,000, or about $250,000 less than last 

Amount assessed under $9 tax limit 

for financial year 1895-6 . . $8,123,212 
Estimated general revenue . . 2,764,290 


Debt requirements .... $3,231,959 
County expenses exempt from tax 

limit 425,000 

Total sum appropriated for the cur- 
rent expenses of the year . . $14,544,461 

making the tax rate on the thou- 
sand |12 90 

Amount which can be raised within 
the $9 tax limit for the financial 
year 1896-7 $8,350,547 

Increase over financial year 1895-6, $227,335 

Of the loans of $7,321,000 issued during the 
year, three and a half and four per ceiit. bonds 
amounting to $5,750,000 were sold upon the open 
market; $1,507,300 four per cent, bonds were 
taken by the commissioners of sinking funds, and 
$63,700 four per cent, bonds were sold to 
various city trust funds. The number of diflerent 
loans placed upon the market during the year 
was ten. The duty of placing the loans, vested 
in the city treasurer, subject to the approval 
of the mayor, is a most delicate and impor- 
tant one, calling for constant watchfulness and 
sound financial judgment. We may congratulate 
ourselves upon the fact that the credit of the 


city remained so good during tlie disturbed 
financial conditions of the last six months that 
the treasurer continued to market bonds, at only 
a slight decrease from former prices, during the 
period when other large cities abandoned the 
attempt to dispose of their securities. 

I am happy to be able to state that it has recently 
been found possible to reduce the interest rate upon 
the twenty-year bonds of the city from four to three 
and a half per cent. A three and a half per cent, 
loan for the sum of $1,500,000 was sold at 101 1 in 
the latter part of November. The last preceding 
three and a half per cent, loan — outside of the 
special rapid-transit loans foi* forty years — was 
issued early in 1890. The credit of the city ot 
Boston stands deservedly high, and there is no 
reason, under the financial policy now pursued,^ 
why it should not remain so. 

During the current financial year the money 
paid into the city treasury for licenses for the 
sale of intoxicating liquors, after deducting the 
one-quarter share payable to the commonwealth, 
has amounted to the sum of $1,082,991.75. The 
expenses of the police department for the finan- 
cial year will amount to about $1,676,000 ; so 
that the receipts from licenses have met nearly 
two-thirds of the total cost of this department. 



The contract for the bath-house on Dover 
street, the plans of which have recently been 
made public, will be awarded very shortly, 
and the work should be completed within the 
next six months. Partly in recognition of the 
interest which the representatives of the wage- 
earners of the city have manifested in the project, 
and of the support which they have given it, a 
clause has been inserted in this contract requir- 
ing that preference in employment upon the work 
shall be given to the membei-s of trades unions. 
I informed the city council of 1896 that I should 
advocate the establishment of several other local 
bath-houses of a similar character during the 
present year, and I now desire to formally recom- 
mend a loan of $200,000 toward erecting baths 
in Charlestown, East Boston, the !N^orth End, 
South Boston, and Roxbury. While this sum 
may not be sufficient to provide proper baths 
for all five of these districts, it would go very 
far toward doing so, and they should all be 
included in any general plan. 

During the past year the subject has been so 
thoroughly studied from every standpoint that 
action upon a comprehensive scale can now be 
safely taken, and if the city council acts promptly, 


Boston can, within the coming year, take a place in 
advance of any other American city in respect to ** 
public bathing facilities. I desire to express my 
acknowledgments of the careful and faithful work 
of the members of the advisory committee upon 
this subject, appointed by me early in the year. 

While the needs of the different sections of 
the city in respect to shower-baths should be 
first met, I believe that one or more large swim- 
ming-baths, such as the town of Brookline has 
recently opened, should later be added. Some 
free instruction in swimming, particularly for the 
benefit of the scholars in our public schools, may 
well be furnished by the city. The public bath- 
ing-beach at the Marine park, South Boston, 
has been so largely used during the past year that 
the need of a greater number of bath-houses is 
already felt, and it is hoped that these can 
be provided before the opening of another season. 
I believe that the smallest possible charges should 
be made for the use of the facilities required^ for 
bathing on the open beach, in order that as 
large a number of the people as possible may 
enjoy this great privilege afforded by our water 

In many of the cities of continental Europe 
baths have for some time been introduced in 
school-houses for the use of the scholars, with 


such excellent results that they have become an 
established feature. The teaching of habits of 
personal cleanliness, which is thus made possible, 
should be no unimportant part of public instruc- 
tion. It should be a source of satisfaction that 
the school committee has decided to try this 
experiment in a new school-house. 


I know of no direction in which the expenditure 
of a few hundred thousand dollars will do more for 
this community, through the healthful development 
of its children and young people, than by the 
judicious provision of properly located and equipped 
playgrounds. «So much public attention has been 
given in this and other cities to the advantages of 
extensive park areas, that the equally great need of 
comparatively small open spaces, particularly in 
thickly settled districts, for use as playgrounds, has 
been largely overlooked. The cify and metropolitan 
park systems have provided Boston and its suburbs 
with one of the finest and most varied systems of 
rural and urban parks to be found anywhere in the 
world. But these lai'ge park areas are not de- 
signed, or only to a very slight extent, to afford 
opportunities for open-air games or athletic sports 
or contests. If one-twentieth of the sum which 
Boston has spent upon her magnificent park system 


could be devoted to the acquisition in proper 
localities, throughout the city, of numerous areas to 
serve as playgrounds, the investment would, in my 
opinion, bring in a still larger percentage of return, 
in the shape of healthful physical development and 
social well-being. I believe thnt every ward of 
the city shoul^, as nearly as possible, be provided 
with some place where children can play, and 
where out-door sports and contests can, to some 
extent at least, be carried on. The city of Paris 
recognizes so fully the public importance of 
healthful out-door recreation that directors of 
sports are employed, to assist in organizing 
them. Boston may well adopt the same en- 
lightened policy and become the first city in 
America in respect to public exercise and 

A fair beginning in this direction has already 
been made during the past year. .The lot of 
laud owned by the city on M street, ' South 
Boston, containing about five acres, has been taken 
out of the hands of the street commissioners, and 
the work of levelling it off to a proper grade, 
for which the sum of five thousand dollars was 
secured, is already in progress. The question of 
how best to equip and utilize this ground has been 
considered at a public hearing in South Boston, 
plans are under way, and the matter is in shape 


for intelligent action. The park eomniissionei'S 
have recently taken a tract of about eighteen 
acres of marsh at Neponset, for which the sum 
of $15,000 was appropriated last year, also a desir- 
able area of about eleven acres, chiefly low 
meadow land, tnown as Billings' field, in West 
Roxbury, for which the sum of $20,000 was 
appropriated in the last general loan order. 
While these two tracts are not at the present time 
in suitable condition for immediate use for play- 
ground purposes, they will be secured at such 
a moderate figure that even after the expense of 
filling has been met they will not be expensive, 
and if such filling is gradually done with city 
ashes its cost will be very slight. It is very 
desirable that such playgrounds should, if possible, 
be laid out so as ultimately to be bounded by a 
street on every side, and this has been secured 
in these two cases. 

The acquisition of spaces of this character in 
our outlying districts is to some extent a wise 
and economical anticipation of the certain wants 
of the not far distant future ; but there are 
other localities where the need of playground ac- 
commodations is already urgently felt. In built-up 
districts it is of course impossible to provide open 
areas of as great size, as the cost of acquiring 
land is considerable; yet these are the very districts 


where it is most important to make some provisiou 
of this character as soon as possible. In ward 
three, Charlestown, for instance, the want of some 
open space is keenly felt, and a petition repre- 
senting the inconvenience and danger caused by 
the playing of children in the public streets, and 
asking for the purchase of a playground, has been 
extensively signed by taxpayers. 

Ward sixteen is another district where there is 
great need of a playground, especially for use by 
young men as an athletic field. In this vicinity 
there is fortunately plenty of vacant low land which 
can be acquired and filled for a reasonable sum, 
and this should be done as soon as possible. 

In thickly populated districts, small open breath- 
ing-spaces for the use of little children, with 
their mothers, would also be valuable. Pro- 
vision has already been made for one open space 
of this character by the appropriation by the last 
city council of the sum of $2,000 for improving 
a lot of laud on Fellows street, already owned 
by the city, containing about three-quarters of 
an acre. A plan for this purpose has been 
carefully prepai-ed, and the work will be" com- 
pleted eai'ly in the spring. 

Open-air gymnasia have already been pro- 
vided by the city at Charlesbank and Wood 
island, and the large use made of both of these 


shows that they meet a public want. Similar 
t^ymnasia, for the use of adults as well as young 
people, should be located at a number of points 
throughout the city, and more attention should 
also be i)aid to providing gynmastic apparatus for 
school children. Last year an appropriation of 
$15,000 was made for an open-air gj^mnasium at 
Commonwealth park, in ward thirteen, South Bos- 
ton; but as the state owns this land, and no Jissur- 
ance could be obtained as to the continuance of its 
use by the city, it was not deemed proper to ex- 
pend this sum, and it is still available. There 
seems to be a sti'ong demand in this ward for a 
gymnasium and playground, and the matter of find- 
ing a suitable location is now imder investigation. 

The appropriation of $100,000 for a playground 
at the North End has not yet been expended. 
Owing to the high price of land in this locality 
it is difficult to secure much of an area with 
this sum; but the more crowded a district is, 
the greater is the necessity of at least some such 
accommodation. The city of Xew York has 
within the last year completed a large open 
square, at an expense of over a million dollars, 
in the heart of the thickly populated Mulberry 
Bend district, and the improvement is now recog- 
nized as having more than justified even this cost. 

Unless some more ccmiprehensive financial scheme 


seems feasible, I recommend a loan this year of 
at least $200,000 to be devoted to the acquiring 
and equipment of playgrounds. I am thoroughly 
satisfied that it would be far wiser for the city 
to expend the sum of $400,000 during the com- 
ing year for public baths and playgrounds, than 
to devote that amount of money to any other pur- 
poses, of however pressing a character. The 
adoption of progi'essive and distinctive municipal 
policies of this nature raises the reputation and 
standing of the city, and tends to bring its gov- 
ernment closer to the people, and to promote a 
civic spirit which will yield valuable rei^ults in 
many directions. 

The subject of public squares is somewhat con- 
nected with that of playgrounds. At the present 
time we have some seventy squares and public 
grounds, large and small, with a total area of about 
one hundred and forty-three acres, in charge of the 
public grounds department. The question of mak- 
ing these open spaces of the greatest possible 
utility to the public is an interesting and important 
one, and many desirable improvements, which would 
add both to the convenience of the people and the 
artistic appearance of the grounds, could be eifected 
within a moderate cost. It would be desirable 
to supply in many of them sand-pits for small 
children to play in. These can be put in at a 


small expense, and have been much appreciated 
where they have been furnished. 

I believe that it would be desirable for the 
city to acqmre most, if not all, of the smaller 
marsh areas within its limits. These are of com- 
paratively small value at present, while the open 
spaces thus secured would be of great public 
value in the future, l^heir acquisition would pro- 
tect adjacent property from depreciation, through 
the undesirable uses to which such land is 
now liable to be put, and would afford dump- 
ing places for the future use of the sanitary 


In my inaugural address the great desirability 
of securing a union passenger station for the use 
of the four railroad lines entering the city on the 
south side w^as urged, and it w^as suggested that 
the city should endeavor to secure the passage 
of compulsory legislation, if necessary, to effect 
this great improvement. A new i)lan for the 
location of such a miion station was bi'ought 
forward eai'ly in the year, upon whi(».h the repre- 
sentatives of the vai'ious I'ailroads affected, and 
of the city, were able to agree ; and by chaj)ter 
516 of the acts of 1896, approved June 9, 
provision was made for the construction and use 


of such a station, and for cei-tain changes in the 
public streets necessarily incident thereto. The 
beginning of the work of construction to be done 
under this act has been unavoidably delayed, both 
on the part of the Terminal Company and of the 
city. The extraordinary financial conditions of the 
summer and autumn prevented the company from 
placing its bonds as rapidly as desired, at a satis- 
factory price. This diificulty has only recently 
been removed, but the Terminal Company has now 
acquired by purchase a large part of the neces- 
sary land, and has sold $6,000,000 of its 
bonds and secured authority to issue $2,000,- 
000 more ; it is expected that its whole invest- 
ment will amount to between eight and ten 
millions. On the part of the city, application was 

made to the war department, as promptly as pos- 


sible after the passage of the act, for the necessary 
permission to construct the sea-wall on Fort 
Point channel. This was duly received, and the 
approval of the plans by the harbor and land 
commissioners is expected shortly. 

This delay has not postponed the final comple- 
tion of the undertaking, as the work to be done by 
the Tei-minal Company has not been held back. A 
large pai't of the land necessary for the widening of 
Cove street has been purchased by the company, 
and a taking of all land within the tei*minal lines 


not yet acquii'ed by purchase will at once be 
recorded. In three months from the date of such 
taking, which time is allowed to the present 
occupants of the real estate before they are 
obliged to vacate, the city will be able to begin 
the construction of new Cove street, and this 
w^ork will be pushed to early completion. 

The plans for the station, with its track connec- 
tions, have received thorough and intelligent study 
for many months. As finally accepted by the 
Tenninal Company, approved by me, upon the 
advice of the city engineer and the consulting 
architect, and also, as required by the act, by the 
railroad commissioners, they provide highly satis- 
factory accommodations for the public. The track 
arrangements seem to be planned so as to handle 
conveniently and expeditiously an immense amount 
of traffic, and the future separation of suburban and 
through travel, which is amply provided for, is a 
feature of great im[)ortance. The company has met 
the reasonable recpiirements of the public in a liberal 
manner, and has [)rovided foi* a long period of 
iuture growth ; and the station, when completed, 
can confidently be expected to prove one of the 
finest and most convenient railroad terminals to 
be found anvwhere in the world. Due attention 
has been paid to the architectural appearance of 
the building.^^and jthe structure should add to the 


beauty of the city. Boston is to be congratulated 
upon securing such an important and valuable 
addition to its transportation facilities. 


I called attention last year to the desirability 
of providing at South Boston for the freight 
business of the Old Colony, Boston and Provi- 
dence, and 'New England railroad lines, and to 
the necessity of abolishing the present grade 
crossing on Congress street for this purpose. 
An act was passed by the last legislature pj'O- 
viding that the commission heretofore appointed 
by the superior court for the abolition of this 
crossing should be given authority to lay out a 
comprehensive plan for a substitute for Congress 
street in South Boston. The representatives of 
the commonwealth, of the city, and of' the rail- 
roads concerned have all agreed upon a plan, 
which has been approved by the commission. This 
includes a new street from L-street bridge to 
Fort Point channel, passing over the railroad 
tracks by a bridge, crossing the channel by a 
new bridge, substantially in the location of the 
present New England railroad bridge, thence by 
a new street on the westerly side of the channel 
to Congress street, and by Congress street, 
widened between the channel and Atlantic avenue. 


to Atlantic avenue. These latter features of 
the plan will be of especial benefit in diverting" 
freight traffic to and from South Boston from 
passing through the extension of Summer street, 
in front of the new union depot. The new bridge 
will be at the foot of Summer street extended, and 
this street and the new street in substitution for 
Congi'ess street will afford important additional 
avenues of communication. The ample facilities for 
the handling of freight, adjacent to the water 
front, which will thus be afforded should prove 
of great future commercial benefit. The commission 
expects to make its decree apportioning the expense 
in the near future. 


In addition to the sum of $100,000 appropriated 
by the city government of 1895 for work upon 
the Strandway at South Boston, the further sum 
of $200,000 was made available by the act passed 
by the last legislature, providing for an addi- 
tional $1,000,000 loan for the completion of 
certain park work. Contracts to the amount 
of $200,000, covering the work of rough grad- 
ing as far as H street, were made during the 
past year, and operations under them are being 
pushed as rapidly as possible. The amount 
available will complete the Strandway about 


to I Street, and it will certainly prove one of the 
most unique and attractive features of our park 
system. A long stretch of public beach, fronting 
upon a fine bay, with ample accommodations for 
bathing and boating, immediately adjacent to a 
district having a population of upwards of 70,000, 
and within about two miles of the business centre, 
will be a possession which can hardly be matched 
by any other city. 

In connection with the question of joining the 
Straudway with Dorchesterway and the rest of 
the park system, as contemplated in the original 
plans of the landscape architects, I desire to present 
a new scheme, which seems to me to be recom- 
mended by many strong considerations. This 
plan was referred by me to the Merchants* 
Municipal Committee, and has received the hearty 
approval of that body. The completion of this 
connecting link can be combined with the aboli- 
tion of the present grade crossing of the Old 
Colony tracks, on Dorchester avenue, in a highly 
economical and desirable manner. This abolition 
is recognized as of pressing importance, but thus 
far it has been found impossible to agree upbn any 
plan satisfactory both to the people of South 
Boston, the railroad, and the city. A plan has 
now been prepared by the city engineer for re- 
locating the Old Colony tracks between the 


Crescent-avenue and South Boston stations, carry- 
ing Dorchester avenue, Boston and Swett streets 
over the new location, with easy grades. The 
new roadbed crosses the Xew England tracks by 
a bridge, and provision is also made for a con- 
nection at grade for the transfer of freight 
to and from the South Boston yards. 

The total expense, of every character, involved 
in this relocation, including purchase of land, 
grading, and construction of bridges, giving 
the railroad much improved • facilities, would 
amount, according to the estimate of the city 
engineer, to about $950,000. This sum would 
not be very largely in excess of the cost of 
any othei* satisfactory plan for the abolition of 
the Dorchester-avenue grade crossing; and it 
has advantages which make it worth much 
more to all parties concerned than any abolition 
of the crossing without a substantial relocation 
of the tracks. By utilizing the ])resent bed of 
the railroad for the purpose of joining the 
end of the Strandway with Dorchesterway, a 
large expense can be saved to the city, if 
it is assumed that the original plan of carrying 
the Strandway across a part of Dorchester bay 
would otherwise have to be carried out. This plan 
would therefore accomplish the four important 
results of doing away with a dangerous grade 


crossing, — which must be abolished in any event 
at a large expense, — of removing the obstruction 
which the raih'oad tracks now present to the 
development and expansion of the adjacent section 
of South Boston, of providing the required con- 
nection between the Strandway and the rest of 
the park system, and of opening an important 
new avenue, by the use of the pi-esent roadbed 
of the raih-oad between the Strandway and Dor- 
chester avenue at B street. 

The plan prepared by the city etigineer has 
been pronounced satisfactory, from the standpoint 
of railroad engineering, by the chief engineer 
of the New York, XeW Haven, and Hartford 
railroad, and it seems to me quite likely that 
it will be accepted by all parties in interest, 
if a fair division of the ex|)ense involved can 
be agreed upon. I trust that it will be possible 
to reach this i-esult in the near future, and the 
advantages to be gained by the city are so great 
as to warrant a liberal financial contribution on its 
part. If this plan can be cariied out, T also believe 
that it would be advisable for the city to accpiire all 
of the shore property, mostly marsh lands, lying to 
the eastward of the railroad between the Crescent- 
nvenue station and the end of the Strandway. 



The difficult question of preparing a practical 
plan, within the bounds of reasonable financial 
expenditure, for the abolition of the grade cross- 
ings in East Boston, has been given much at- 
tention and study by the city engineer. Within 
the last few months the representatives of the 
railroads concerned have shown a disposition to 
cooperate with the city in this matter. A new 
scheme, providing for depressing the railroad bed 
ten feet at Saratoga street and six feet at Sumner 
street, involving an estimated expenditure of 
about $900,000, exclusive of the cost of lower- 
ing the tracks, has recently been prepared by 
the Boston and Albany railroad company. The 
position taken by the railroad companies as to the 
contributions which they should respectively make 
to the total cost of carrying out a i)lan is a serious 
obstacle in the way of arriving at any agi'cement, 
while the provisions of the legislative act are so 
unusual that under it the city probably cannot 
bring about the abolition of the grade crossings 
against the opposition of the companies. 

It seems to me that by far the most satisfac- 
toiy solution of the whole problemTwould be the 
conversion of the Boston, Kevere Beach, and Lynn 
railway into an electric line, and its relocation, 


within the limits of East Boston, upon some street 
west of its present roadbed, so that the latter 
could be used for the tracks of the other railroad 
companies. This plan might be carried out to great 
advantage in connection with the proposed new 
ferry, as the landing on the Boston side now used 
by the Revere Beach railway would become avail- 
able for use as a public ferry-landing. In this 
manner additional facilities could be secured with 
the least . possible increase in the movement of 
ferry-boats across the harbor. 

The matter of abolishing the gi-ade cross- 
ings of railroads in Charlestown, of which the 
most important are those at Cambridge street, 
Prison Point bridge. Main street, and Rutherford 
avenue, is still in the hands of the commission 
appointed by the superior court. The problems 
involved are difficult and complicated; and some 
diversity of views between the respective repre- 
sentatives of the city of Boston, the city of 
Cambridge, the railroads, and the commonwealth, 
as the owner of the land occupied by the state 
prison, has occasioned unavoidable delay in finally 
fixing upon plans. Good progress toward reach- 
ing a final conclusion has, however, been made, 
and a plan has now been prepared substantially 
satisfactory to all parties concerhed as to the 
Charlestown side, and a hearing has recently been 


held to detemiine the construction on the Cam- 
bridge side. 

merchants' municipal committee. 

In my inaugural address a plan was outlined for 
the formation, on a representative basis, of an 
advisory committee, designed to establish "a 
strong and permanent connecting link between 
the city government and the leading business 
organizations of the city." A body designated 
as the Merchants' Municipal Committee was ac- 
cordingly constituted, consisting of two represent- 
atives of the Associated Board of Trade, and 
one I'epresentative each of the Chambei' of Com- 
merce, the Clearing House Association, the Mer- 
chants' Association, the Real Estate Exchange, 
and the Shoe and Leather Association. I have 
derived valuable assistance during the year from 
frequent consultations Avith the public-spirited and 
broad-minded business men who were selected as 
membei's of this committee. Regular meetings have 
been held every two weeks during most of the year, 
and many municipal questions of large importance 
have been discussed and voted upon. Recently the 
members of the committee have, at my request, 
taken up from a business standpoint the problem 
of reorganizing 'the city council, and have given 
a great deal of time and thought to this ques- 


tion. They have enlisted the interest and co- 
operation of various organizations and individuals, 
inchiding prominent members of the legislature, 
and the bill which has just been made public 
is the result of their efforts. The experiment 
of constituting this committee has fully answered 
my expectations, and I am satisfied that an 
organization of this character should be continued 
permanently in some manner in connection with 
the city government. At my request a section has 
accordingly been inserted in the bill referred to, 
providing for a permanent Board of Commerce 
and Finance, to act as an advisory body to the 
mayor, the city council, and the general court, 
representative of the organized business men of 
this city and authorized to speak for them. 


I s[)oke last year of the interest of the city of 
Boston in securing " such amendments to the tax 
laws as will bring them more into harmony with 
the need.s of a large commercial centre, brought 
into daily competition with cities in which tax- 
ation is levied in a manner far less burdensome 
to business enterprise," and advocated some 
changes designed to promote the commercial and 
industrial development of this city. The Mer- 
chants' Municipal Committee took up the matter, 


at ray suggestion, and gave a large amount of 
time and thought to it. A bill was framed on 
the general lines referi'ed to, and its passage was 
advocated before a committee of the legislature. 
As a result of this agitation of the subject, the 
legislature provided for the appointment of a 
special commission of five persons to "collate and 
report facts concerning taxation, present a sum- 
mary of conclusions to be drawn therefrom, and 
suggest any changes advisable in the laws of the 
commonwealth relating to taxation." This com- 
mission is given until the first day of October 
next to make its report, and no legislative action 
can therefore be expected until the session of 
next year. 


In my inaugural address I called attention to 
the defects of the present system of electing 
aldermen, and advocated some measure Avhich 
would do awav with its manifest faults. The 
experience of another year under the present 
law has only strengthened the conviction, held 
generally by our citizens, that something better 
must be substituted for it. Public opinion now 
seems to be ripe, not only for a change in the 
present method of electing aldermen, but in the 


whole constitution of both branches of the city 

Observation of the workings of the present two 
branches has entirely satisfied me that a single 
chamber, if properl}^ constituted, would be a 
great improvement over the present dual organ- 
ization. I am strongly opposed to the mere 
abolition of the common council, leaving all the 
legislative powers of the city in the hands of a 
board of aldermen consisting of a small number 
of members; but marked benefits would, in my 
opinion, result from the practical consolidation of 
the present two branches into a single chamber, 
intermediate between them in size, and combining 
ward representation with representation of the city 
at large. 

The present city council is a survival of the 
organization which existed under the charter as it 
stood prior to 1885. The change then made, taking 
away all power of controlling executive business 
from committees of the council, has had an 
important influence, fully experienced only during 
the last few years, upon that body. It now 
seems necessary either to move in the direction 
of still further reducing the powers of the 
council, including its control over appropria- 
tions, as has been done in the city of New 
York, or to make some change in its consti- 


tution, designed to give it more influence and 
importance, if not more direct power. I be- 
lieve strongly in adopting the latter course. 

Even with all the executive powers vested in 
the mayor, the legislative body of a great 
city has important functions to perform, and it 
would be a distinct loss to the body politic 
to reduce it to a position of insignificance and 
impotence. In the first place, the executive 
should constantly be subject to close obsei'va- 
tion and intelligent criticism by the legislative 
branch of the government. Secondly, the only 
way to avoid, or keep within any [)roper 
bounds, interference with local affairs by the 
state legislature, is through a local legislative 
body, of such character and strength that it can 
safely be trusted with the i>roper powers of local 
legislation, and that its action will be given 
weight as a fair expi'ession of local sentiment. 
Thirdly, the council has important duties to 
perform in making the wisest possible applica- 
tion of the financial resources of the city, and 
in initiating and formulating new and progressive 
municipal policies. In this city we should at 
least, in my opinion, give a full and fair trial 
to a city council constituted in a different 
manner from the ])resent body, and having only 
a single chamber, befoie deciding to take any 


further steps in the way of diminishing its 

The work of formulating a reorganization bill 
has been entered into with a desire to com- 
promise differences of opinion, and secure a 
union of forces upon some good measure. The 
bill now drafted contains ideas and provisions 
suggested from many different sources. Without 
necessarily approving all of its features, I 
shall give my earnest support to any practical 
measure, generally agreed upon by the persons 
actively interested in this movement, which 
embodies the general principles which seem to 
me essential to secure the improvement of 
existing political conditions. 

The provision contained in this bill for 
the election, on the years when no mayoralty 
election is held, of a president of the city council, 
seems to me an excellent one. The importance of 
such an office would in many respects be second 
only to the mayoralty, and the contest for it 
would be sure to draw out a full vote. The 
decrease in the total number of ballots cast 
at the last city election indicates the need 
of some greater stimulus to bring out a vote 
of proper proportions. The comparative lack of 
interest which characterized this election may 
be partly accounted for by the fact that twelve 


out of the fourteen candidates for aldermen nomi- 
nated by the two leading political parties were 
sure to be elected, and it may reasonably be ex- 
pected that there would be more active attention 
to the choice of the members of a single legis- 
lative body; but a contest between two or more 
candidates for a single important office arouses 
the voters much more than the choice of a 
large number of members of a city council can 
possibly do. The election of an officer who is 
given the broad powers which this bill proposes 
to vest in the president of the city council will 
doubtless excite the interest of the voters. 

Changes in nominating methods have so length- 
ened the municipal campaign that it now begins 
too soon after the state election, if not actually 
before it. The theory of the law is that there 
should be such a separation between the two 
elections that the votes may not run on exactly 
the same party lines. In order to promote this 
object, as well as to avoid other objections to a 
practically continuous political campaign for the 
two elections, I believe that the date of the city 
election should be moved forward at least one 
week, if not longer. This might not allow" a mayor- 
elect sufficient lime, before the beginning of the 
municipal year, in which to prepare a comprehen- 
sive inaugural address; but the delivery of such 


an address might with decided advantage be post- 
poned to the beginning of the financial year, on 
February first. A new mayor would then have 
I the benefit of one month in oflSce before being 
obliged to outline his policy, and the accounts of 
the financial year w^ould be made up for his use. 

In spite of the prospect of the passage of some 
I'eorganization measure during the present session 
of the legislature, I have thought it best to 
give my approval to the act passed by the last 
legislature providing for the payment to members 


of the common council of a salary of $300 per 
-anmun, and forbidding the payment of any money 
from the city treasury "for or on account of 
refreshments, carriage hire, or other personal 
expenses, incurred directly or indirectly by, or in 
behalf of, any member of the common council 
oj' any committee thereof." The payment of these 
jsalaries will cost the city some $7,500 more than 
5uch expenses have recently amounted to, but 
I did not think it proper, after the approval 
of this act by the people, to take advantage of 
the anomalous provision which gave me the power 
to prevent it from going into efifect. 


I desire to recommend strongly the establishment 
by the city of a statistical deparlment, to be under 


the charge of an unpaid commission. Full infor- 
mation has been secured as to the organization 
and methods of work of the municipal statistical 
offices which have for many years been success- 
full}^ maintained by Paris, Berlin, and other lead- 
ing continental cities. Xo American city, I believe, 
has 3^et established such an office, and there is an 
opportunity for Boston to secure the credit of 
leading the way in this very important line of 
work. Such a department should supplement the 
work already done in the line of statistical en- 
quiry by the governments of the United States 
and of the commonwealth, supervise and syste- 
matize such work of this character as is already 
undertaken by other departments of the city gov- 
ernment, such as the board of health, and also 
pursue special lines of investigation of its own. 
Another important feature of its work should be 
the systematic collection and tabulation of com- 
parative statistics of other municipalities. An 
annual publication, giving an abstract in proper 
form of all current statistical information relating 
to the city, such as is published by some Euro- 
pean cities, would also be of great utility. Finan- 
cial compai'isons of the cost of work done or 
service rendered in different years, or in different 
cities, would be valuable in disclosing waste or 
inefficiency. One member of such a commission 


should be a business man skilled in financial analy- 
sis, and the city engineer should be a member, 
e.e officio. Such a department could be started 
upon a very small annual appropriation, and I 
trust that the city council will promptly cooper- 
ate with me in this matter, and by the passage 
of the necessary ordinance enable this important 
work to be in operation b}' the beginning of tlie 
next financial year. 


The board of elections, established last year 
in accordance with legislation recommended by 
my predecessor, has upon the whole worked well 
and produced good results. While simplicity, 
convenience, and concentration of authority and 
responsibility are secured by the new system, 
thei'e are certain dangers connected with this 
very centralization of control of all matters per- 
taining to elections. To enable the present plan 
to work successfully there must be, in the first 
place, general public confidence in the integrity 
and ability of the commissioners, and in their 
freedom from improper outside influences or 
selfish political motives; there must also be, under 
the bi-partisan constitution of the board, full 
confidence upon the i3art of each of the 
j)olitical parties in the commissioners representing 


it. The office subordinates of the board must 
also be men of good character, not person- 
ally engaged in active political contests, either 
between factions or parties. Any general feeling 
that the powers of the board were improperly 
used, directly or indirectly, for partisan purposes, 
or that either political party was obtaining thiough 
it an undue advantage over the other, would be 
fatal to its permanent usefulness. The board, in 
short, is a delicate piece of machinery, especially 
adapted for the performance of a certain work; it 
cannot be tampered with, and it should not have any 
undue strain put upon it. 

Anything in the nature of a central returning 
board, with practically unlimited powers, would not 
be supported by the public opinion of our citizens ; 
but under the i)i'esent law providing for the re- 
counting of ballots cast in caucuses and conven- 
tions, the election commissioners are made to 
occupy somewhat this position. It is impossible 
to have all the ballots cast in the city of Boston 
recounted in a limited time in the office of the 
board without giving rise to the suspicion, — no 
matter how carefully arrangements for recount- 
ing may be made, and although such suspicion 
may have no basis of fact to rest upon, — that in 
the process of recounting, ballots may be tam- 
pered with, to change the result of a close 



election. "The requirements of the present law, 
therefore, not only impose a very onerous duty 
upon the election board, but they tend to subject 
the present system to a sti^ain which should not 
be imposed upon it. 

Upon the othei* hand it must be admitted 
that candidates for office, whether in caucuses 
or at the polls, have the right to an accurate 
count of the ballots; rec6unts have too often 
shown that the count at the polls was not 
reasonably correct, and there have in certain 
instances been clear indications that the count 
of caucus ballots was not even honest. 

It would not seem safe to do away with 
the recounting of votes cast at caucuses, at 
least until they are placed as nearly as pos- 
sible • under the same legal safeguards as 
elections ; but it has for many years been my 
belief that the recounting of ballots cast at 
elections — which is, I believe, peculiar to this 
commonwealth — was unnecessary and dangerous. 
I desire to suggest, as a substitute for such re- 
counts, that two special election officers, having 
no other duty than that of counting and tabu- 
lating the votes, and selected solely for their 
special qualifications for this work, should be as- 
signed to duty at each polling-place at the close of 
the polls. Each block of ballots should be counted 


independently by each of these counters, to verify^ 
the result of the vote, which should only be tabu- 
lated when the two counts agreed. In this 
manner the true results can be arrived at 
fully as accurately as by recounts. Or it 
might be found desirable to have all the ballots 
carried by police officers, at the close of the 
polls, under proper safeguards, to a large hall, to 
be there counted by a force of expert counters^^ 
under the supervision of the election' commis- 
sioners, and in the presence of the representa- 
tives of different political parties and the public. 
The figures thus made up should be treated as 
final, and the ballots should either be destroyed 
at once, or held subject to be called for by the 
courts or by the legislature. 


The complete new registration of the voters of 
Boston, required under the provisions of chapter 
449 of the acts of 1895, was successfully ac- 
complished, at an expense of about $100,000. At 
the close of this extra registration there were 96,- 
746 names upon the voting list, or 5,203 more than 
the largest number ever before on the list, which 
was at the municipal election of the year 1895. 
The percentage of registered voters to assessed 
])olls was sixty-two per cent., which was the 


same percentage as at the municipal election of 1895^ 
This would not seeni to indicate the existence in 
this city of any such peculiar conditions as to call 
for the expenditure of so large a sum of money for 
the preparation of a new voting list. It can be 
positively affirmed that the woi'k of registration 
has for years been performed in Boston with 
more care than in most of the cities of the 
commonwealth. If any public interest required 
the state to impose this large expenditure upon 
the city of Boston, and to subject its citizens 
to the trouble of a new registration, it certainly 
requires that the other cities of the common- 
wealth should be brought under the same pro- 
vision. But the new register of voters may be 
worth all that it has cost in time and money 
if it establishes legislative confidence in the hon- 
esty of our voting lists. 


I said a year ago that it was worthy of seri- 
ous consideration whether the established legis- 
lative policy as to the regulation of caucuses 
should not be carried to its logical end by 
placing them, ^^ both as to the appointment and 
payment of their officers and as to the laws 
regulating their holding, upon the same footing 
as elections.'- The experience of another year 


has, I think, satisfied nearly all fair-mindeo polit- 
ical observers of the need of such further steps. 
The present caucus system has demonstrated its 
capacity to bring out a much larger vote than 
was polled at the caucuses held under the old 
methods. By a few changes, — including the ap- 
pointment of caucus officers in the same manner 
as election officers and payment for their ser- 
vices, the opening of the polls as early as twelve 
o'clock to permit voting in the noon hour, the 
making of nominations, in nearly all cases, by di- 
rect caucus vote, without the intervention of nomi- 
nating conventions, and the securing t<j every 
voter of the right to vote in his party caucus 
upon making oath to his party membership, — our 
caucuses can easily be made into true primary 
elections, giving fair and accurate expression ta 
the desires of the majority of the voters of the 
different political parties. It is of much impor- 
tance, in the interest of good municipal govern- 
ment in this city, that these additional safeguards 
should bq thrown around the caucus; and it is 
to be hoped that the work of the special recess 
committee appointed by the last house of repre- 
sentatives to investigate the conduct of caucuses in 
Boston will result in the passage, at the coming 
session of the legislature, of some comprehensive 
and satisfactory law. 


Ultimately, and perhaps in the not distant 
future, I believe that the difficulties now ex- 
perienced in connection with the counting and 
recounting of ballots, and also in respect to de- 
termining what constitutes a vote upon a ballot, 
will be practically removed by the adoption of 
some simple and practical voting-machine. The 
commonwealth has already taken some steps in 
the direction of providing such machines, and they 
were used in the city of Worcester at the last 
state election. 


I expressed last year the opinion that "the 
numerous organizations among our people, formed 
for various pur|)oses, ought to play an impoi-tant 
part in the work of keeping the citizen in 
touch with the city government, and arousing 
him to a sense of his vital interest in its work,'^ 
and stated that it would be my purpose to in- 
vite the cooperation of all societies which were 
prepared to take up municipal questions in a 
public-spirited manner. In pursuance of this pol- 
icy, early last summer a number of representative 
charitable and philanthropic organizations were 
invited by me to cooperate with the work of the 
institutions department by constituting an ad- 
visory board on public institutions, the members 


of which should visit the different institutions main- 
tained hy the city, interest themselves in their 
work, and make from time to time such recom- 
mendations for their improvement as they might 
deem proper. This board was organized in 
the month of August with twenty members, 
representing the following organizations : Asso- 
ciated Charities, Boston Provident Association, 
Children's Aid -Society, Citizens' Association, 
Committee of Council and Cooperation, Massa- 
chusetts Prison Association, Massachusetts So- 
ciety for the Prevention of Cruelty to Children, 
Medico-Psychological Society, Merchants' Municipal 
Committee, Municii)al League, Society of St. Vin- 
cent de Paul, Suffolk District Medical Society, 
Twentieth Century Chib, United . Hebrew Be- 
nevolent Association, and Young Ladies' Aid 
Societv. The board was divided into four com- 
mittees, of five members each, upon children's, 
insane, pauper, and penal institutions, respectively. 
Meetings of the whole board, at which the insti- 
tutions commissioner and myself have been present, 
have been held once a month at city hall, and 
formal reports, making valuable recommendations 
upon many important matteis, have been presented 
from ti«ie to time by the different committees. 
The board is composed of repiesentative and 
public-spirited men and women, and the instilu- 


tions department has already materially benefited 
by their advice ; I have no doubt that their 
continued cooperation in its delicate and impor- 
tant work will be productive of still more im- 
portant and far-reaching results in the future. 

This board partly accomplishes some of the 
objects which were aimed at by the bill for the 
separation of the institutions into four classes, 
to be placed under three separate boards of trus- 
tees and one commissioner, which was favorably 
reported to the last legislature by the committee 
on metropolitan affairs, but was defeated in the 
senate. The experience of the past year has only 
confirmed me in the conviction, based upon the * 
considerations stated in my inaugural address, that 
the best interests of the institutions demand a 
change in the present system of centralized admin- 
istration through a single commissioner, and the 
passage of some measure for the appointment of 
unpaid boards of trustees; the present institu- 
tions commissioner heartily sympathizes with this 
view. The arguments in favor of centralized busi- 
ness management seem to me to be overborne, in 
the case of institutions dealing with human beings, 
by other considerations. The administration of \ 

charitable and reformatory institutions is not 
merely, or even primarily, a business matter, 
while of course they must be conducted with due 


regard to business principles and methods. Hu- 
manitarian management upon a scientific basis is 
not inconsistent with true economy. 

One of the strong arguments in favor of 
administration through unpaid boards of trustees 
is that the management of the various classes 
of institutions would be put upon a basis where 
it would be less liable to be afiected by polit- 
ical changes. A consistent line of policy could 
be then mapped out, with the assurance that it 
could be given a fair trial and followed for a term 
of years. The present system of administration 
affords more possibility for the play of polit- 
ical influences than any other could do. I am 
thoroughly convinced also that distinct advan- 
tages are gained by giving representation to 
women in connection with public work of this 
cliaracter, as provided in this bill; I have there- 
fore increased the number of women upon the 
Board of Overseers of the Poor from two to 
three. The movement for the passage of a bill 
for the division of the institutions, containing 
substantially similar provisions to the one re- 
ported last year, will be renewed at this session 
of the legislature, and will receive my hearty 

Pending the passage of sucli a measure, it 
will be the endeavor of the institutions com- 


missioner and myself to make every improvement 
in the workings of the institutions which finan- 
cial limitations will permit. With this object in 
view, we have already visited a number of the 
important institutions of the state, recognized as 
conducted efficiently and in harmony with the 
most advanced ideas. It must be admitted that 
the public institutions of the city of Boston 
have not in the past been as well managed as 
simihu' institutions maintained by the common- 
wealth, and a close comparison of the conduct 
of our institutions with that of similar state in- 
stitutions should certainly prove helpful. 

A thorough, scientific examination of the dietaries 
and cooking arrangements of the difterent institu- 
tions has been instituted by the department; it 
is fully expected that this investigation will be 
productive of excellent results, and possibly of 
some saving in the cost of subsistence. Modern 
chemistry is placing the whole matter of nutrition 
and cooking upon a scientific basis, and the city, 
which constantly feeds several thousand persons 
in its various institutions, should fully avail itself 
of the results of scientific inquiry in this field. I 
regret to be obliged to acknowledge that the food 
furnished at the Marcella-street Home has not in 
the recent past been of a character to meet fully 
the admitted requirements of gi-owing children. 



The question of starting an alphabetical card 
catalogue or register of the inmates of our 
different institutions, giving as full information 
as possible about each, and enabling him or 
her to be traced from one institution to another, 
has received careful attention at the hands of 
the advisory board. A system has been .agreed 
upon, and will be started at once. 

A most important and delicate work in con- 
nection with the ])enal institutions, which has 
been too much neglected in the past, is that of 
assisting discharged i)risoners to make a fresh 
start in life, and become self-su])i)orting and law- 
abiding citizens. It seems to me that the work 
of the institution should be supplemented by pre- 
paring the prisoner for leaving it, and extend- 
ing a helping and guiding hand to him at the 
critical moment when he does so. The success- 
ful performance of such work calls for unusual 
(jualities, but 1 think that it should be under- 
taken by the institutions department. 

In filling the vacancy recently caused by the 
resignation of an assistant commissioner, appointed 
as a physician to have special charge of the medical 
Avork of the dei)ai'tment, it was determined to make 
the position a purely prof(\«!sional one, having no 
administrative duties, and to give it a corre- 
sponding title. One of the two assistant commis- 


sionerships was therefore abolished, and the 
position of medical director was created, with 
the same salary. This new position has been 
filled solely with the desire of securing the best 
possible professional qualifications for its impor- 
tant work. 

The new cell-house at Deer island, acconnnodat- 
ing over five hundred inmates, is ready for occupancy 
as soon as light can be sup[)lied to it, and this 
will make possible a somewhat better classification 
of the inmates. An electric plant is now in process 
of installation, and it is hoped that it will be possi- 
ble during the coming year to secure a sufficient 
appropriation to supply by electricity all the light 
required on Deer island. I believe that there is 
great need of careful inquiry into the practical 
operation of the laws under which persons are 
sentenced to Deer island. The j^opulation of this 
institution is larger than it should be. 

The important work of industrial training at 
the reformatory for boys at Rainsford island has 
been greatly hampered for lack of suitable plant and 
buildings. Plans for supplying this deficiency are 
now under consideration, and some additional 
machinery has already been ordered. It is of the 
highest importance that the boys in this institution 
should be thoroughly trained in some line of in- 
dustrial oi' mechanical work. Unfortunatelv there 


is not sufficient room upon the island to enable 
the reformatory to accomplish the best results. 

A summer hospital for infants, under the insti- 
tutions department, was opened on this island 
last summer, several of the old buildings having 
been fitted up for the purpose, and a physician- of 
special qualifications and experience in connection 
with this work took charge of it. It is hoped 
that it will be found possible to continue this 
hospital during the coming summer. 

The facilities for children in the Marcel la-street 
Home are 'inadequate in several respects, and an ap- 
])ropriation will shortly be requested for an addi- 
tional building, to provide better dormitory and 
play-room accommodations. The medical work of 
the home has now been placed under a regularly 
organized medical statt', serving without pay. 

The apparent impossibility of securing last year 
the very large appropriation required, prevented 
any steps from being taken towai'ds the build- 
ing of a new reformatory, to take the place of 
the present house of correction at South Boston, 
under chapter 53G of the acts of 1890. The 
question of finding a suitable location for this 
institution, within the limits of Suffolk county, 
is a very difficult one, and it is questionable 
whether the necessary land can be purchased, 
and proper, buildings erected, within the limit of 


$500,000 prescribed in the act. It is important, 
however, that some steps in the direction of 
establishing such a reformatory should be taken 
as soon as possible. 

The old police boat has recently been transferred 
to this department, and .now aflfords a much-needed 
addition to the faciUties for reaching the institutions 
located upon the islands in the harbor. 


The city hospital has been fully maintained dur- 
ing the past year on the advanced standard which 
has given it during recent years such a high rank 
among the great public hospitals, not only of this 
country, but of the world. Some of the important 
improvements which have been in progress have 
been completed, and others will be ready for use 
during the coming year. Two new surgical wards, 
accommodating fifty-nine additional patients, have 
been finished and occupied, and are found to be 
the best wards in the hospital. The new surgical 
operating rooms, which are probabh" the most ex- 
tensive and complete of any in the country, and 
have been given the highest praise by competent 
critics, are now in use, marking a new period in 
the history of the hospital. The old surgical oper- 
ating building is in process of reconstruction. 
Important improvements have been made upon the 


grounds. A complete electric-light plant is in pro- 
cess of installation. The plans for the new laundiy 
building, so much needed, for which the sum of 
iP36,000 was appropriated, are nearly completed, 
and contracts will be made as soon as the 
weather permits work to be done. This building 
will be complete in all its arrangements, and 
will constitute a very important addition to . the 
present conveniences of the hospital. The want 
which the trustees feel to be the most j)ressing 
at present is that of further accommodations for 
nurses. The amount necessary to purchase for 
this purpose the estates on the corner of Mas- 
sachusetts and Harrison avenues, which are within 
the line of the proper boundary of the hospital 
grounds, namely, $68,000, was once appropriated, 
but Avas transferred to another purpose. The 
number of nurses is now 127, and this number 
will soon be materially increased ; the present 
nurses' home only accommodates about 70, the 
others being distributed through the hospital 
buildings, taking room which might be used for 
the accommodation of additional patients. I 
earnestly recommend an appropriation to meet 
this need. 

At an estimated expenditure of $16,000, a coal 
pocket can be constructed for the use of the 
hospital, into which coal can be landed by the 


cargo, affecting an appreciable reduction in its 
cost, so that the expense involved could be saved 
in five or six years. 

The subject of establishing a down-town relief 
station, for the temporary care of j)ersons injured 
by accident or otherwise in the business section, 
has for some time received careful attention at 
the hands of the trustees and the staff. Such a 
relief station, connected . with the hospital and 
under the same management, with an ambulance 
attached to it, would meet an important want, 
and its establishment has been strongly urged 
by many well-known citizens and business firms. 
The estimated expense for a plant for this pur- 
pose, outside of rent of building, is $16,000, 
and the annual maintenance cost is estimated at 
$25,000. I have given some attention to this 
subject, and am prepared to recommend the 
necessary appropriations. 

The hospital has been nearly full at all times 
during the year, and the number of ambulance 
calls has more than doubled over previous years. 
By close and economical management and the 
postponement of some necessary repairs on the old 
buildings, the trustees w^ill be enabled to finish 
the financial year within their appropriation. 



Early in the year I appointed a special expert 
commission to inquire into the necessity of improve- 
ments in sanitation and ventilation in our school 
buildings, for which the school committee had re- 
quested a large appropriation. The result of this 
inquiry, which was carried to the point of prepar- 
ing plans and securing reliable estimates of cost, 
was to fully establish the necessity of even larger 
expenditures than the school connnittee had rec- 
ommended. In the month of March I sent a 
messasre to the citv council earnestly recommend- 
ing a loan appropriation of $300,000 for this pur- 
pose. Unfortunately, owing to some controversy 
as to the respective authorities of the execu- 
tive and of the school connnittee, the passage of 
this loan order was delayed until the end of 
June, and it was then too late to have new plans 
prei)ared, as i*equired by the school committee, and 
to comi)lete any large ])()rtion of the work during 
the sunnner vacation. Under the understanding 
arrived at with the connnittee, thorough plans and 
specifications have been prepared for all work 
uudertaken, and these have been subject to my 
api)roval. The sum of $172,9;')0.8() has now been 
expended out of the amount approi)riated, mainly 
for changes in the plumbing of different school- 


houses, and considerable improvement in sanitary 
conditions has ah'eady resulted; but a large 
amount of this work, of pressing necessity, still 
remains to be done, and I recommend an addi- 
tional loan appropriation for its continuance during 
the next summer vacation. 

The school committee has exceeded its appro- 
priations of $2,173,400 for the current financial 
year by the sum of $117,000. Responsible execu- 
tive control of the finances of the city is seriously 
impaired by the power of the committee to spend 
money beyond the appro])riation8, and its readi- 
ness to use such power. 

I believe that the control by the school com- 
mittee of important executive work, such as the 
construction and repair of buildings, tends to in- 
terfere with its proper educational functions, and 
fails to secure the best results for the city. It 
is a continuance of the old practice of adminis- 
tration by committees, which has been condemned 
and abandoned in connection Avith all other 
city business. The right to determine what work 
shall be done, and to approve plans before they 
ai*e adopted, properly belongs to the school com- 
mittee: but the work should be laid out l)y, and 
performed under the sole direction of, some 
executive ofticei', who can be lield responsible 
foi' results secured and for economy in expend- 


iture. I am happy to be able to state, how- 
ever, that there has been a very marked improve- 
ment during the past year in the professional 
standing of the architects selected by the com- 
mittee, with my approval, to build new school- 

The expense of purchasing sites for new school 
buildings has been very heavy, and under the 
awards of the street commissioners the citv has 
been obliged to pay, in many instances, as 
high as one hundred per cent, in excess of 
assessed valuations. The* approval of the mayor 
is required when a lot of land is selected by 
the school conunittee, but at present he has no 
control over the price to be paid for it. 


For a number of years the Typographical Union 
has been endeavonng to secui*e the recognition 
by the city of the organization of the printing 
craft, through the appointment of some member 
of the union as superintendent of printing. I 
stated a year ago that " in some foreign coun- 
tries organizations of wage-earnei-s take a con- 
stant, active, and intelligent interest in municipal 
(juestions, and some of their members occupy 
im])oi'tant i)ositions and render useful service in 
connection with citv governments," and that similar 


cooperation mig*ht well be encouraged to a greater 
extent than in the past in American cities. 
After mature consideration, I concluded that it 
would be advisable, in pursuance of the policy 
thus indicated, to place in charge of the city 
printing some member of the Typographical Union 
thoroughly qualified to fill such a position, and 
that this step would be in the public interest; 
I am now entirely satisfied that this has proved 
to be the case. It seems to me highly desirable 
to make organized bodies of intelligent wage- 
earners feel that they are directly represented in 
the management of public business, particularly 
such as pertains to their several trades. 

The city printing has been done for the last 
twenty years under a contract made in 1876, and 
allowed to run on without change since that 
time. About $70,000 a year is now paid out for 
composition and press-work alone. When the 
present superintendent of printing took office, I 
instructed him to examine carefully into the ex- 
penditui-es for printing, and to report to me 
whether the city could not with advantage 
establish a ])lant for itself, to do a part or the 
whole of its own printing. After careful investi- 
gation, both the superintendent and myself have 
become satisfied that the city should take steps 
in this direction. The continuance of the con- 


tract referred to stood in the way of adopting 
this policy, as it gave the contractor all of the 
printing of the city. As it was originally 
made through the joint committee on printing 
of the city council, at a time when it exercised 
powers since vested in the executive, it seemed 
necessary that action for its abrogation should be 
taken by this committee, as well as by the superin- 
tendent of printing, and this has just been effected. 
Typogi'aphical unions have for .many years 
urged the establishment of public printing plants 
for the execution of public pi'inting, and the 
printers of this city have warmly favored the 
l)roposed establishment of a municipal plant. 
The new policy will be inaugurated in a care- 
ful and conservative manner. Probably only a 
]>ortion of the city printing will be undertaken 
at first, and the work of the municipal plant 
only gradually ext^ended. In the meantime 
the |)resent contractors will continue to do such 
])orti()n of the city printing as the municipal 
plant is not ready to take. It should be stated, 
in justice to them, that both the quality of their 
work and the manner in which it has been 
executed have been found satisfactory. 



Believing in the principle that the city should do 
directly for itself, without the intervention of con- 
tractors, as much of its own work as it may be found 
practicable and economical so to do, I have during 
the past year brought entirely under the control 
of a city depaitment a branch of public work, of 
constantly growing importance, which had hereto- 
fore been intrusted to private contractors. Last 
May an electrical construction division was estal)- 
lished under the department of public buildings, and 
heads of departments were instructed to apply to this 
division for all electrical work, whether coming 
under the head of repairs or new construction. An 
expert practical electrician was appointed chief of 
this division, and its work has assumed considerable 
importance. All materials required for electrical 
w^ork have been purchased at wholesale, at the low- 
est possible prices, and carried in stock; and an 
efficient electrical corps, able to handle the different 
bi*anches of electrical work, has been organized. 
This city has been somewhat l)ehind the times in the 
introduction of electric lighting in its various public 
buildings and institutions, and consequently there 
is an urgent demand for quite a large amount of 
new electrical installation, including a number of 
isolated plants. 


The work of installing the electric-lighting plant 
at the city hospital, for which the sum of .f-l:0,0()0 
had been appropriated, was turned over to this 
division. This work has been prosecuted as rap- 
idly as possible; a contract for the dynamos and 
engines has recently been awarded, at a low figure, 
and the installation will be completed within the next 
few months. It is expected that this plant, which 
will be a very important addition to the hospital, 
will be of the most modern and improved character, 
and that it will prove a credit to the city. The 
cost is not expected to exceed estimates given by 
private contractors foi* doing the same w^ork in a 
less satisfactory manner. 

This division has also reconstructed the elec- 
trical work at the Chestnut Hill reservoir, which 
was found to be in a dangerous condition, and 
has done a considerable amount of work at Long 
island and Deer island, besides installing a large 
number of lights in school-houses and city offices, 
and at the Stime time attending to all the calls 
for electrical repair work, which have assumed 
considerable proportions. 

I think that it can safely be claimed that the 
total cost of doing the electrical work of the city 
will at least be no greater on the present basis, 
while the quality of the work done and of the 
stock used, which is a matter of great impor- 


tance, will be better. As an illustration of the 
loss that may be occasioned by imperfect work, 
I may mention that it has been found by the 
chief of this division that, through hnperfeet in- 
sulation, the county of Suffolk is i)aying for 
$l,2(X) woi-th of electricity each year in the new 
court-house which is lost before it gets to the 
lights. The division has just been intrusted 
with the further duty of inspecting the use of 
electric lights in the different offices of the city, 
with a view to checking unnecessary waste of 

The snm of f 15,000 will be asked for this branch 
of work, under the approi)riation for the i)ublic 
buildings department, for the coming financial 
year, and this amount, with such additional sums 
as may be provided by loan, for electrical con- 
struction for other departments, should maintain 
the division upon an efficient working basis. 


The total length of overhead wires in the district 
in which the work of placing wires underground 
was carried on during 1896 was about fourteen 
million feet, about two-thirds of which will be 
removed as soon as the several companies own- 
ing them have their underground cables drawn into 
])lace and ])roperly connected. 1()7,000 feet of 


• subway, ami 784,000 feet of ducts, with 614 
manholes, Avere constructed. A large amount of 
abandoned wires have been removed, and about 
3,300 offices and buildings were inspected to as- 
certain if the wires w^ere properly fused. Some 
1,500 notices of defects were sent to the inter- 
ested parties. The work of the interior wiring 
division has materially increased, wiring and ap- 
pliances having been inspected for over 1,800 arc 
lamps, 70,000 incaiulescent lights, and 694 motors.. 
AVires and appliances in process of installation in 
all new buildings were carefully inspected. None 
of the seventeen fires caused by electricity during 
the year were due to wires or fixtures which 
had been inspected by the department. Frequent 
measurements have been made of the insulation 
of the electric plants of theatres, hotels, and other 
large buildings. 

nrrLDixc; department. 

Notwithstanding disturbed financial conditions, 
the numl)er of permits issued by the building de- 
partment for the erection and alteration of build- 
ings has exceeded the I'ccord of any previous 
year. The inspection force, which has for some 
time been insufficient, has been materially strength- 
ened by the apj)ointment of two additional build- 
ing inspoctois and three additional ins])ectors of 


plumbing. Through this increase it has been 
possible to oi'ganize the department into divi- 
sions, consisting of an architectural division, a con- 
struction division, a plumbing division, an egress 
division, and an elevator and hoistway division, 
each under a separate head. The legal work 
connected with this department has been in- 
creasing so rapidly as to call for the special 
detail of an assistant of the law de|)artment, 
which has produced much more satisfactory re- 
sults in checking and punishing persistent attempts 
to violate or evade the building laws. 


For the reasons given in my inaugural, I 
a])pointed early in the year a consulting archi- 
tect, attached to the mayor's office. Experience 
during the year has constantly demonstrated the 
necessity of having such an officer, if the mayor 
is to exercise with any care and intelligence the 
important powers relating to the building opera- 
tions of the city now placed in his hands by the 
charter. Important matters have constantly been 
referred to the consulting architect, and reported 
upon by him, and he has in many ways ren- 
dered valuable services to the city. 

The architect division of the public buildings 
department has been thoroughly reorganized and 


placed upon an efficient working basis, under the 
direction of a well-trained architect. Even under 
the present system of employing private architects 
for all new buildings, questions are constantly 
arising which should be referred to this divi- 
sion, and from time to time the city has impor- 
tant pieces of work, coming under the head of 
repairs rather than of new construction, which call 
for services which it can well render. It also 
has an important function as a centi*al reference 
and record office for the plans of all city build- 
ings. It is necessary, further, that all repair work 
involving any reconstruction should be carefully 
jjlanned, and that drawings and specifications for 
its execution should be prepared before it is 

Aside from the duty devolving upon the archi- 
tect division of supervising the completion of build- 
ings in progress at the time when the architect 
department was abolished, several of which have 
only recently been finished, it has had charge of 
the important alterations recently undertaken, and 
now nearly completed, in the upper stories of 
citv hall. These alterations, which will cost about 
$15,000, will practically add some ten thousand 
square feet of floor space, in well-lighted rooms 
suitable for business offices and engineering work, 
to the present cramped accommodations. 


I am strongly in favor of improving and ex- 
tending the existing office accommodations of the 
city govei'nment in or immediately adjacent to 
city hall, and of putting off for many years to 
come the expensive undertaking of building a 
new hall. In accordance with this policy, I have 
urged, since the beginning of last year, the 
acquisition by the city of the estate owned by 
the Massachusetts Historical Society, between the 
old Probate building and Tremont street. This 
building is of fireproof construction, and four 
additional stories can be added to it at an esti- 
mated expense of about $130,000. In order to 
prevent the possible sale of this estate to other 
parties, the two lower floors of the building were 
leased by the city during the year, with the right 
to purchase the whole building for the sum of 
$200,000. I am gratified to l)e able to state that 
such arrangements have now been made that the 
city can in all probability secure the title to this 
building for a cash payment of $50,000, and that 
$25,000 of this amount has just been provided 
by loan. An architect has been selected for the 
building of the additional stories, and the plans 
will soon be ready. AVhen this addition is com- 
pleted, the city will secure a large increase, 
at a veiy reasonable cost, in its present insuffi- 
cient business quartei's, and a substantial amount 


of money now expended for rentals can be saved. 
Later the Probate building should be rebuilt, 
to correspond with tlie Historical Society building, 
and the city will then have a continuous struct- 
ure, nine stories high, extending from Court 
square to Tremont street, and connected directly 
with the city hall. 


AVork upon th6 North End park is now being 
vigorously prosecuted. A contract for tei'racing, 
grading, and finishing the portion of the park 
west of Atlantic avenue is wfeU under way, and 
will be completed by next summer. After care- 
ful study, |)lans have been ])repared, calling for 
an expenditure of about $30,000, for the bath- 
house for women, with an adjoining administra- 
tion building, to be placed upon the southerly side 
of the portion of the park adjacent to the harbor. 
Plans for the ])iling and the covered pier have 
been completed by the city engineer, and the work 
of pile-driving will shortly be begun; the pier, 
which has an open promenade on its roof, and bath- 
houses for men connected with it, should also be 
ready for use by next summer. A bathing-beach 
has already been made, and it is expected that the 
facilities for bathing in the open harbor which will 
thus be furnished will be very largely used by the 


residents in this thickly settled section. A protected 
l)lace for small boats will be provided between 
the pier and the shore. The long-delayed com- 
pletion of this local marine park, which now seems 
near at hand, will add a nnique and popular feature 
to the park system. The provision by a nmnici- 
pality of attractive accommodations for open-air 
bathing, in the middle of the water front and close 
by the most thickly populated districts, is an im- 
portant departure, and its results will be watched 
with much interest. 

During the last year the need of some better 
organization and more responsible control of the 
important and varied work of this department be- 
came manifest, and, at my suggestion, the office of 
general superintendent was created. This position 
has been temporarily held during the last few 
months by a member of the engineering force of 
the , department, and a permanent appointment has 
just been made. After carefijl consideration of the 
mattei*, the commission decided that this important 
positioji could only be filled satisfactorily by a 
man of special training in, and qualifications for, 
])ark work, and the aj)pointment was made with 
the sole desire of securing the best man for the 
pur])()se, wherever he could be found. 

'I'he connnission has recently become satisfied 
that the woi-k of the de])artment could be better 


carried on if the main office were located in the 
centre of the park system. It has therefore been 
decided to make use of the park building at Pine 
Bank, and the office will be removed to that point 
within the next few months. 

The transfer of the park police force from 
the park department to the police department 
has been decidedly disadvantage ous, and the park 
commission will, with my approval, apply foi* the 
passage of an act restoring this force to its 
control. Effective administration of the park 
system absolutely requires that the officers charged 
with the duty of enforcing laws and regulations 
within the park limits shall be under the inmie- 
diate direction of the park authorities. 


The necessity of reducing durmg the winter 
season the number of men employed by the 
sti-eet department, owing to the impossibility of 
carrying on at that time the work of street 
construction, has long been a source of embar- 
rassment. While it is desirable, both from the 
standpoint of maintaining an efficient working 
organization and from that of })roper considera- 
tion for the men employed, to maintain the force 
as nearly as possible upon a permanent basis, 
nevertheless considerable reductions in the number 


of men employed are sometimes necessary. The 
superintendent of streets has lately proposed a 
plan for dealing with this difficulty which meets 
with my hearty approval, and it is expected 
that it will shortly be put into eifect. This 
proposal is that the minimum number of em- 
ployees in each division of the department 
whose services ai'e needed all the year round 
should be carefully estimated; that employees 
up to this number should be put upon the basis 
of a permanent force, to be constantly employed; 
and that all employees in excess of this number 
should be ranked as substitutes, to be employed 
only during such portions of the year as the 
department has occasion for their services, 
vacancies in the permanent force to be filled 
from this list of substitutes. This is sub- 
stantially the same system which is success- 
fully applied in the police and fire departments, 
and it would seem to be a more busine§s-like 
policy for the city, and more fair and satisfVictory 
to the men. Even on this basis the number of 
men permanently employed by the street depart- 
ment would be in excess of two thousand. 

In this connection, I desire to call ' attention 
to one serious difficulty which the street depart- 
ment suflers fnmi. The laborious nature of its 
work calls for men of good health and strength. 


At present there is a considerable percentage 
of old men in the different divisions, who are 
not entirely fitted for the work which they are 
called upon to perform. The majority of these 
men have grown old in the sei'vice of the city, 
and the street department, under its various 
heads, has not eonsidei*ed it jnst or proper to 
discharge them; they have been continued from 
year to year, somewhat lessening the efficiency 
of the service, and making it difficult for the 
heads of divisions to accomplish the best results. 
I submit this difficulty to your consideration. 

There is one important defect in the policy which 
has been pursued by the city, under pressure of 
financial necessities, in connection with the main- 
tenance of street snrfaces. The proper system to 
follow is that of constantly repairing defects, as fast 
as they become noticeable. But this would have to 
be paid for out of the maintenance appropriation, 
and the pressure upon this fund has been so great 
that the department has been obliged to allow 
street surfaces to wear out almost entirely, and 
then to renew them out of a loan apj)ropriation. 
If the city could be divided into small districts 
and a few men kept constantly at work in each, 
repairing minor defects and keeping the street 
surfaces up to pro])er condition, it would result in 
decided economy in the long run. The parkways 


are now cared for on this system of constant 
repair work, with most excellent and economical 

It has been the policy of the street department 
durrnjjf the past year to extend as far as possible 
the use of asphalt for pavements, and a consider- 
ably larger amount of such pavement has been 
laid than in any jDrevious year. I am strongly in 
favor of the increased use of asphalt for street 
surfaces. Within the last ten or fifteen years 
the laying and maintenance of asphalt streets 
have been reduced in this country to a thoroughly 
scientific basis, and recently, with the improved 
methods which have been introduced, and some 
cheapening of cost, the area of asphalt pave- 
ment in our principal cities has been increasing 
vei'y rapidly. Boston has been somewhat back- 
ward in appreciating the advantages of this form 
of street surface; I think that it should be used, 
as it has been this year on Huntington avenue 
and the extension of Columbus avenue, upon all 
streets to which it is suited. The city of New 
York has been expending the sum of $1,000,000 
a year upon asphalt streets, and they are 
being extensively laid in tenement, as w^ell as 
in residential, districts; it is claimed that the 
rate of mortality in certain tenement districts has 
actually been i-educed by the asphalt j)avement, 


owing to its far greater cleanliness. The prob- 
lems of street watering and of street cleaning 
are greatly simplified wherever asphalt is used, 
and it has shown its abilit}' to stand even the 
heaviest traffic about as well as any other form 
of pavement. 

With the beginning of the present calendar 
year the department has established a small charge 
for each permit issued for making an opening in 
a street, or for any other purpose 


Work upon the five wide avenues extending out 
from the city has been vigorously prosecuted and 
will be pushed to completion during the coming 
year. The construction of Commonwealth-avenue 
extension to the Newton line, of Bi-ighton 
avenue from Commonwealth avenue to Union 
square, and of Huntington avenue from Copley 
square to the Brookline line, have been substan- 
tially completed. The extension of Columbus 
avenue has been completed as an asphalt street 
from Massachusetts avenue to the Roxbury cross- 
ing, and as a telford macadam street from West 
Walnut park to Walnut avenue, leaving an unfin- 
ished gap of about one mile between these sections. 
Blue Hill avenue has been practically finished from 
Grove Hall to the ])rincipal enti'ance to ^Franklin 


park, and one of the two roadways has been so 
far completed as to be in use from Franklin pai-k 
to Walk Hill street. 

A large area ' of macadam streets has been 
wholly or partially constructed under the assess- 
ment law, and twenty-eight public streets have 
been wholly or partially repaved or surfaced at the 
expense of the city. About 157,000 square yards 
of macadam, 51,000 square yards of asphalt, 
27,000 square yards of granite pavement, and 13,000 
square yards of artificial stone sidewalks, have 
been completed during the year. 96,000 feet, or 
about nineteen miles, of new" edgestone have been 
set, as against about 50,000 for an ordinary year; 
and over 131,000 square yards of block pave- 
ments, requiring over 2,000,000 new blocks, have 
been laid in streets and guttei's, against 105 ,()()() 
square yards for the lai'gest year heretofoi*e. 

Two new crushers, of the latest improved 
j>attern, have been set up, one in Koxbui-y and 
one in West Roxbury, so that the paving division 
now has seven in operation; important improve- 
ments in screens, to secure the diffei*ent sizes 
of stone required for street work, have been made. 
Improvements in tlie two stone crusheis in the 
Brighton district have also been nuide, saving 
labor in shovelling stone and otherwise increas- 
ing their output. All of the immense quantity of 


cracked stone needed for the work upon tlie new 
avenues, as well as the large amount required 
for the regular work of the division, was turned 
out by the city's crushers, with the exception of 
the stone for one section of Blue Hill avenue. 
Close attention has been given to the matter of 
allowing only the hardest kind of stone to be 
put through the crushers, and the best of ma- 
terial for street work has thus been secured. 
Steam power has been substituted for horses in 
loading edgestones at the South End yard, seem- 
ing greater economy and a saving of time. 

'J^he extensive work involved in the construction 
of Cottage Farm bridge has been completed, and 
a loam speedway seven-eighths of a mile long has 
been constructed between this bridge and Brighton 

The sti*eet- inspection work has been wholly re- 
organized, and new regulations have been made as 
to the opening of streets, so that each one can 
be systematically followed up and the jM'oper 
replacing of the roadway surface secured. Under 
the dii'ection of the street dej)ai'tment, the West 
End Sti'cet Kailway Company has put in a new 
type of rail, especially suited to an asphalt street, 
with a flush lip. Over twenty-four miles of track 
work have been ]'ej)aved by this comj)any with 
new blocks, under the inspection of the depart- 


rnent, thus securing tlvis large amount of inij)roved 
roadway service. 


Through the loan appropriations secured, ihe 
sewei' division has been enabled during the year 
to enter upon a nunibei' of pieces of important 
construction, long delayed and urgently needed, 
and a larger amount of work has been done than 
evei' before in the history of the division, nearly 
eiofht hundred men havino* recentlv been em- 
ployed. The connections with the metropolitan 
sewer system in East Boston and Charlestown 
are well under way, and will be conii)leted dur- 
ing the coming year, to the great benefit of the 
residents of these sections. In Dorchester, the 
auxiliary pumping-station at Lyons street has been 
completed, and the Shanu*ock-street and Devon- 
street outlets have been begun. In South Bos- 
ton, the D-street, Seventh-street, and Dorr-street 
outlets have been started, and in Koxbnry the 
Guild-row relief sewer and the extension of the 
Dorcliester-brook main sewer are under way. A 
beginning has also been made upon the construc- 
tion of the Canal-street relief sewer, which has 
been adv^ocated for many years. There are many 
old sewers in the city, inadequate and unfit for 
use, which should be replaced by new ones as 
fast as money can be secured. 


The necessary repairs upon the valuable pump- 
ing plant at the main drainage work^ have 
been partially made, and provision for completing 
them must be made during the coming year. 
The need of an incinerating plant in connection 
Avith these works, for disposing of the miscel- 
laneous articles collected at the exit of the sewer, 
has long been felt, and an order for the con- 
struction of a small incinerator has just been given. 
The new main channel of Stony brook, from the 
gate-house to the existing channel south of Hogg's 
bridge, is. well under way, and will also be 
finished during the year. 

The sewer divisicm has charge of all natural 
watei'-courses and surface water, and this is an 
extremely complicated and difficult matter to deal 
with. Some legislation in relation to such water- 
courses is greatly needed, and will be applied for 
at this session of the legislature. 

The maintenance appropriation of this division 
is inadecjuate for keeping the sewerage system 
in proper condition, and the work of cleaning out 
catch-basins cannot be done as often as it should 
be. . A machine for this purpose, which has been 
successfully used in Canada, has been ordered, 
and will shortly be in operation. 



Both (luring the last year and the year before, 
the sanitary division was obliged to expend a con- 
siderable amount in excess of its appropriation. 
In 1895-6 the appropriation was $400,000, and the 
expenditures about $432,000, while for the year 
1896-7 the appropriation is $435,000, and the 
expenditures will amount to about $475,000. The 
latter sum, however, is still less than the amount 
which was expended by the sanitary division for 
the year 1893-4, and very slightly in excess of 
its expenses for the years 1892-3 and 1894-5. 
The increased expenditure of this year over the 
last seems a large one, but a careful analysis of 
the accounts of the division shows that the greater 
cost is more than balanced by increased work, 
performed, and I am satisfied that it has been 
managed in a careful and economical manner. 
The simple fact is, that the demands of our 
citizens in this line of service are rapidly in- 
creasing^ from vear to vear, and these demands 
have to be met. House dirt and offal must be 
removed and disposed of, whatever may be its 

The percentage of increase in the expenditures 
of the division is less than the percentage of 
increase in the quantity of material to be handled. 


The amount expended for city labor in the 
removal of ashes has only increased four ])er 
cent, over that spent last year, while the num- 
ber of loads removed has increased eleven per 
cent., so that the cost per load moved has been 
mateiiallv reduced. The same statement is true 
as to the removal of offal. A new blacksmith 
shop has been added to this division, to accom- 
modate the northei-n districts, and still further 
economies in this line of work are to be intic- 

This division is in pressing need of an addi- 
tional dumping scow. In case of an accident to 
either of the two scows now in use, which occa- 
sionally occurs, serious embarrassments result. A 
tow boat, for the exclusive use of the department, 
is also desirable. The present wharf facilities are 
insufficient, and only one boat at a time can now 
be docked. With further room, the division 
could repair its own boats, instead of being 
obliged to send theni to East Boston. It seems 
desirable that some good wharf properties for the 
use of this division should be secured in East 
Boston and South Boston. Much of the material 
collected cannot be used even for filling, • md 
the difficulties of disposing of it otherwise than by 
taking it to sea are increasing every year. 

The time is fast coming when a portion of the 


matter collected will be disposed of by some 
incinerating process; but even then locations upon 
the water front will be desirable, for a number 
of reasons. The cremation of garbage by the 
reduction process is in successful operation 
in several cities, under contract arrangements, 
and has just been started in the city of New 
York. The revenue from the sale of swill to 
farmers has fallen off materially during the last 
year, owing to the low price of pork, and 
public opinion is likely to demand before long 
the discontinuance of this method of disposing 
of garbage. The swill-yard adjacent to the Mar- 
cella-street Home has long been a nuisance to 
that institution during the summer season, and 
some arrangement for its removal will shortly be 


The work of the street-cleaning division has 
been intelligently and efficiently carried on during 
the year. With an expenditure substantially the 
same as that of last year, a larger number of 
miles of streets have been cleaned, and more 
loads of dirt have been removed, than ever 
before. The important work of the patrol or 
push-cart service, which now employs forty-six 
men, has been extended and further systematized, 
and the men now wear uniform caps and badges. 


A special man has been assigned to the duty oF 
keeping clean, after a snow-storm, every crossmg 
in the down-town district. 


The work of the bridge division, which has 
charge of one hundred and tw^enty-four bridges 
of various descriptions, has been handled in a 
careful manner. Many of these bridges are old, 
and in such a condition that they require close 
care and intelligent attention* to repairs to keep 
them in fit condition for use. The method of 
keeping the repair account has been changed so 
as to show the cost of each particular job done, 
which had not been shown heretofore. Dupli- 
cates of all wearing parts have been provided 
for immediate use in case of emergency. A sub- 
stantial saving has been effected by having lum- 
ber delivered in the exact lengths required for 


In the ferry division, electric motors are being 
substituted for tow-horses, with entirely satisfac- 
tory results, to assist in pulling heavy teams up 
the drops, and this will result in substantial sav- 
ing, as well as improved service. Two ferry-boats 
which had not been out of the water for a num- 
ber of years have been hauled out and metalled.. 


Electric lighting has been extended, and a number 
of important minor improvements have been made. 
Three new drops have been put into position, to 
replace old ones pronounced by the city engi- 
neer to be dangerous, and have been paid for 
out of the special loan of $500,000 for improved 
ferry facilities. The ferry-boat '^Ben Franklin," 
built in 1871, is fast reaching the limit of her 
usefulness, and a new boat to take her place 
should be contracted for at once; and the feiTy- 
boat ^^Winthrop," built in 1873, can hardly be 
expected to do service for many years more. 

The question of providing additional ferry facili- 
ties, under the provisions of chapter J:35 of the 

acts of 1895, has engaged the attention of the 


street department and of the committee on ferries 
of the city council, but no feasible way of pi'o- 
viding a ferry landing at a new point on the 
Boston side, within the money available, seems yet 
to have been pointed out. It has been suggested 
by the street department that, in view of the 
serious difficulties in the way of securing such 
new landing, it might be wiser to devote the 
money available to extending and improving 
the present landings and adding more slips; but 
the best settlement of this matter, as stated above, 
would probably be the acquisition of the Kevere 
Beach railway ferry-landing. 



The street-watering service has such a bear- 
ing upon the comfort and health of the public 
that it is important to make it as efficient 
and comprehensive as possible. It is extremely 
difficult to keep macadam streets, so largely used 
in the residential sections of the city, so that 
they are neither dusty nor muddy. Upon windy 
days in dry weather nothing short of almost 
continuous watenng will prevent the dust from 
flying in clouds. It is hoped that it ' will be 
possible to expend a somewhat larger amount of 
money during the coming year upon the street- 
watering service and to make it more efficient. 

An electric watering-car has recently been tried 
by a number of smaller cities in this common- 
wealth, with results which are pronounced highly 
satisfactory. There seems to be no reason why 
such a service should not be successfully in- 
troduced in this city, thereby secui'ing at an 
economical cost the watering of many miles of 
paved streets which are not touched by the 
present service. Hydrants for the replenishing of 
these watering-cars are placed between the street- 
railway tracks, at intervals of about one-half mile, 
and the tank can be filled without requiring a 
longer stoppage than is often necessary for taking 


on passengers. A few months ago, several miles 
of the West End street-railway track were equipped 
with hydrants for a test, and a watering-car was 
operated in a satisfactory manner; but the trial 
was discontinued owing to doubts entertained by 
the management of the company as to its right, 
under its charter, to operate such cars. The 
arrangement proposed is that a contract for the 
watering of certain streets should be made be- 
tween the city and a company controlling these 
watering-cars, such company then contracting with 
the street-railway company for the furnishing of 
current and for track rights. There seems to be 
no reason why the West End company should not 
be authorized, at the request of the municipality, 
to perform its part of this service, and a special 
act for this purpose will be asked for at the 
coming session of the legislature. The service 
should be made a general one. If it had to 
be paid for out of the general taxes of the city it 
would probably have to be too limited, and there- 
fore it would seem to be desirable to assess the 
expense upon the abutters on paved streets so 


The only franchise granted to a new company 
during the past year has been that giving to 
the Boston Pneumatic Transit Company the right 


to lay atid maintain pneumatic tubes in certain 
streets, for the transmission of mail matter and 
small articles of merchandise. An executive con- 
tract was made in connection with the grant of 
this franchise, which establishes, for the first time 
in this city, I believe, the principle of payment 
for the use of streets by private corporations. 
Beginning with a smaller return, this company is 
finally to pay two and one-half per cent, of its 
annual gross earnings into the treasury of the 
city. While the amount of revenue to be received 
in this particular case is a comparatively small 
one, owing to the somewhat novel character of 
the enterprise and the commercial uncertainty 
attending it, a precedent of much importance has 
been established. Application will be made to 
this legislature for the passage of some act for- 
mally giving to the city government the right to 
make arrangements of this character exacting a 
pecuniary return for the grant of rights in the 
public streets. 


The street commissioners have for some years 
favored the cutting down of the present grade 
of Bowdoin street so as to make it a prac- 
ticable thoroughfare, at least for carriages. This 
plan was recently brought forward in connec- 
tion with the completion of the state house 


grounds, but it was found that the requirements 
-of these grounds and their approaches which were 
deemed by the state house commissioners to be 
necessary, stood in the way of any adequate 
loweriug of the grade of this street, and also 
of its widening on the side adjacent to the 
state house. It is to be regretted that the 
•opportunity of making a valuable thoi'oughfare, 
which would be a benefit to the city, thus 
seems to be shut off. I desire to suggest, as a 
partial substitute, the reduction of the present 
grade of Somerset street, between Beacon and 
Howard streets, to about six feet in one hundred, 
and the extension of this street to Court street. 
A practicable route for carriages across Beacon 
Tiill by way of Park street would thus be 
opened. The grade damages ought not to be 
serious, and such a change of gi'ade would inci- 
•dentally greatly benefit the new court house. 
The grade of Ashburton place would have to be 
rsomewhat changed at the same time. 

A plan has been prepared by the street commis- 
sioners, at my request, for extending Swett street 
from Andrews square, at a width of seventy feet, 
in the line of Preble, Mercer, and Burnham 
streets, to East Ninth street. The length of this 
extension and widening would be about half a 
mile, and a new and important thoroughfare from 


the South End to Sonth Boston, over which 
electric cars would doubtless be run, would 
thus be opened. The section of this extension 
between East Ninth street and the Old Colony 
railroad would, if the plan for relocating the 
Old Colony tracks above mentioned is carried 
out, connect the end of the Strandway with the 
present roadbed of the Old Colony, which would 
then become a parkway. 

The street commissioners are ready to widen 
Canal and Haverhill streets, on the sides next to 
the old Boston and Maine terminal, to the width 
of seventy feet, as soon as the transit commission 
is prepared to allow them to do so, and this im- 
portant improvement will shortly be made. 


The work of mapping out undeveloped territory 
in the outlying wards of the city, under chapter 
323 of the acts of 1891 and amendments thereto, 
has been earned forward under the direction of 
the board of street commissioners. During the 
last year 42 sectional plans (7 in Roxbury, 15 
in West Koxbury, 15 in Dorchester and the South 
Bay, and 5 in Brighton) have been filed in the 
office of the city engineer, and some 20 addi- 
tional sections, now in progress, will be ready 
for filing during the present month. 


The long-promised widening of Clinton street 
has been completed, and an important improve- 
ment has also been made in St, Martin street, 
Chariest own, by the construction of a much-needed 
flight of steps. The streets around the new union 
station — Dorchester avenue, the extension of Sum- 
mer street, and new Cove street — have also been 
planned, and the widening of Congress street to 
80 feet, from Atlantic avenue to Fort Point chan- 
nel, has been ordered. Plans for the widening of 
Tremont street, Brighton, from Oak square to the 
IS^ewton line, to the width of 70 feet, have been 
completed, and this desirable improvement should 
be made as soon as possible. 

Under the provisions of chapter 323 of the acts 
of 1891, the city has the right to borrow not ex- 
ceeding three million dollars, in excess of sinking 
funds, for the purpose of constructing new streets 
and sewers, the cost of which is to be repaid by 
special assessments upon abutters. The privilege of 
securing the building of streets and sewers under 
the provisions of this act has been so largely made 
use of by the owners oC real estate in process of 
development, that the above limit has now nearly 
been reached. Bonds to the amount of $3,350,- 
000 have already been issued, and only $150,000 
more are now available, and the resources for 
this year will be far more than exhausted for 


construction work on streets and sewers already 
ordered and urgently demanded. Application 
will be made to the legislature for the passage 
of an act raising the present limit of the 
amount of money which can be borrowed, with 
the provision that any excess above such limit 
shall be expended solely in such a manner that 
it will be fully repaid by the assessments. As 
the city will thus merely be lending its credit 
upon good security, there is no reason why it 
should not assist in this manner, within any 
reasonable financial bounds, in the development 
of taxable property. 


Good progress has been made upon the first 
contract, covering the construction of ten masonry 
piei's, on the new bridge to Charlestown, and 
the city engineer has recently nearly completed 
the plans for the masonry and approaches on the 
Charlestown end. The piers now in process of 
construction' should be completed next summer, 
and it is expected that the bridge will be open 
by a year from that time. The estimated cost 
is about $1,250,000, of which $750,000 was 
appropriated by the city council inside the debt 
limit, and the remaining $500,000 is to be pro- 
vided by loan outside of the debt limit, upon 


the requisition of the Boston transit commission. 
Charlestown street should be widened from the end 
of the bridge to Haymarket square, to pi'ovide an 
adequate approach; and the necessary expenditure 
for this purpose can, in the opinion of the cor-^ 
poration counsel, be provided for by the transit 
commission, under its powers. 


The legislature of last year passed an <ict pro- 
viding, in case of favorable action by the i^espective 
city councils of Boston and Cambridge, for the 
construction of a bridge across the Charles river in 
the line of Magazine street extended, the expense 
of its construction, not exceeding $400,000, to be 
met by loan, issued by both cities outside of the 
debt limit, each bearing one-half of the cost. I 
have declined to take any steps under this act, 
partly because of a general objection to further 
loans for purposes of this character outside of the 
debt limit, and partly because it seemed to me that, 
although there might be occasion for the building 
of such a bridge, this city would derive no such 
benefit from it as to make it just for it to bear half 
of the expense. A bridge at this point would be 
used mainly for the purpose of a county thorough- 
fare, and the two counties most concerned should 


case and the large amount of money involved, a 
very careful study of all matters bearing upon it is 
being made, and special counsel and experts have 
been retained for the protection of the inteiests 
of the city. 

Basin 5 was taken from the city by* the met- 
ropolitan water board just one year ago. The 
total expenditures of the city upon this work^ 
amounting to $1,118,975.74, have now been re- 
paid by the state. 

Under the provisions of chapter 488 of the 
acts of 1895, surplus income from water rates, in 
excess of interest and sinking-fund requirements 
and maintenance expenses, now goes into the 
general cash balance of the city treasury. At the 
beginning of the cmrent financial year the sum 
so received amounted to $109,036.68. Of this 
amount $74,000 was appropriated by the city 
council, in the month of November, to meet certain 
liabilities incurred by the school conunittee in 
excess of its appropriation, which the city is by 
law obliged to pay; and the auditor and myself 
were obliged to transfer the balance of this sum 
to meet bills for repairs in school buildings, also 
incurred in excess of the appropriation therefor. 

It has been thought advisable to restore the 
charges formerly made by the water department 
against other departments for water used by them,. 


SO as to credit the water department, as a 
separate account, with the full revenues to which 
it is entitled. As these charges were not included 
in making the appropriations for the depart- 
ments, transfers to some department appropria- 
tions will have to be made to provide for meeting 

The water department has been managed in a 
careful and economical manner, and many deisira- 
ble improvements in business methods have been 
introduce^. The maintenance appropriation is 
$50,000 less than that of last year, but it will 
not be exceeded. 


During the year a committee of the city council 
visited a number of the large cities of the middle 
west to investigate the use of pipe-lines, running 
from the water front, for fire-extinguishing pur- 
poses. Provision has now been made by the 
city council for constructing, in the down-town 
district, about a mile and a half of pipe-line, 
enabling the fire-boat to throw salt water upon 
fires, the establishment of which service the fire 
commissioner has for some time strongly rec- 
ommended. A contract for a new fire-boat, 
of such light draught that she will be able to 
reach a large stretch of water front which the 


present fire-boat cannot reach, will very shortly be 
placed. After careful inquiry into the subject, the 
fire commissioner has, with my approval, given an 
order for a powerful self-propelling fire-engine, 
throwing a very much larger stream of water 
than ordinary fire-engines, to respond to second 
alarms, especially in the down-town district, and 
this will be in service within a month or two. 
Engines of this type have been greatly improved 
within recent years, and seem to offer important 
advantages, if they are found adapted to our con- 
ditions in this city. The fire-alarm branch has 
been thoroughly investigated, and a number of 
desirable improvements have been introduced. 

The city has been fortunate in not having had 
any very serious conflagration during the year. 
The total losses by fire within its limits for the 
first nine months of the current financial year 
amounted to $1,006,766, of which sum $440,877 
represented losses on buildings and $365,889 
losses on their contents. It should be gratifying 
to our citizens to know that Boston now stands 
high up among the large cities of this country in 
the smallness of the percentage of fire losses 
relative to the total valuation of property. 

The system of allowing each member of the 
fire department one day in eight off* duty, the 
adoption of which was made possible by a special 


appropriation made by the city council, has been 
put into effect, and is working successfully. 


During the past year the commercial organiza- 
tions of Boston have been actively interested in 
securing an adequate appropriation from Congress 
for making the improvements in our harbor 
necessary to adapt it to the requirements of 
modern steamships. It is gratifying to be able 
to state that provision has been made for secur- 
ing, during the coming spring and summer, an 
accurate survey of the present channel from 
Broad sound, showing just what work is re- 
quired to make it suited to accommodate the 
largest vessels; and the war department has just 
issued an advertisement inviting contractors to 
submit bids for the whole work, on a continuing 
contract, of deepening the present ship channel 
to twenty-seven feet at low tide, and widening 
it to one thousand feet. Boston harbor will thus 
be provided, within a few" years, with a channel 
safe and sufficient for the largest vessels, to be 
supjjlemented later by an additional channel direct 
from Broad sound. 

The commonwealth has also shown its interest 
in the improvement of our harbor by appropriat- 
ing the sum of $150,000, to be spent by the 


board oi harbor and land commissioners in: 
dredging inside of the termination of the main 
ship channel. A large part of this work has 
already been completed, and the balance will be 
finished by next summer. The work of adapting 
Boston harbor in all respects to the requirements 
of modern commerce is one of such importance to 
the whole state, that it would, in my opinion, be 
desirable for the commonwealth to extend the 
liberal policy initiated by this appropriation, and 
to provide any reasonable sums required to sup- 
plement the improvements now undertaken by the 
federal government. 


The amount of pi-operty in Boston and its 
suburbs exposed to the attack of ships of war 
armed with modern long-range guns is so enor- 
mous, that, however remote may be the prospects 
of such attack, some proper harbor defences 
should be provided, if only by way of insurance 
against possible dangers. Fortunately our harbor 
is capable of being almost absolutely protected 
by batteries of modern guns, located at suitable 
points upon the headlands and islands. A com- 
plete and comprehensive scheme for the fortifi- 
cation of the harbor was prepared by the war 
department some time since, and within the^ 


present year guns will be placed in position upon 
several of the most important points, affording a 
strong line of defence. In addition to the sixteen 
mortars which have for some time been in place 
and under garrison at Winthrop Highlands, three 
ten-inch gnus have just arrived at Fort Warren 
and are ready to be mounted ; during the coming 
year five ten-inch guns, for which the platforms 
are already substantially finished, will be in posi- 
tion on Long island head, and it is also expected 
that a battery of eight mortars will be erected 
either on Deer island or on Peddock's island. 

Four years ago the secretary of war ad- 
dressed a communication to the mayor of Bos- 
ton, asking the city to give to the general 
government certain locations for batteries upon 
Deer island, containing about thirtj' acres. 
No action was taken upon this communication, 
and a renewed application to the same effect 
has just been addressed to me on behalf of the war 
department. These locations would be taken from 
the city only as required for the work of fortifica- 
tion ; and only one tract, containing about fifteen 
acres, to be used for a mortar battery, would be 
required at present. As the government has a 
right to take land for fortifications by eminent 
domain, the only question is whether the city 
will transfer the title without payment. It is 


urged on behalf of the war department that 
the transfer of the use of Castle island to the 
city should be considered as an offset to the 
transfer of these battery sites. It should cer- 
tainly be gratifying to our citizens to feel that 
they will not be left much longer absolutely 
without defence against a naval attack, and I 
recommend the surrender of the locations re- 
quested, without asking for compensation. 


It is of great importance, in order that work 
may be intelligently laid out and planned, that the 
general loan orders should be passed earlier in 
the municipal year than has generally been the 
practice. Last year the first general loan order was 
not passed until the month of July. The important 
work of the street department can only be prose- 
cuted to advantage when financial calculations can 
be made in advance, and I trust that the city 
council will take uj) this important matter early in 
the year, and authorize at least the greater part 
of the loans which the city is to issue. 

One of the great difficulties now met with in the 
proper management of our municipal finances is that 
of obtaining the passage by the city council, at the 
proper time, of loan appropriations for purposes 
benefiting the city as a whole, and not of special 


interest to any particular locality. The pressure 
for loan appi'opriations for local improvements, 
many of them desirable and important ones, is so 
great, that it is only with much difficulty and con- 
siderable uncertainty that such appropriations for 
necessary general purposes can be obtained. The 
general necessities of the city should always be 
given precedence over purely local wants ; but 
at the present time it is always difficult, and some- 
times impossible, to accomplish this result. The 
requirement of a two-thirds vote of all the mem- 
bers of each branch of the city council in order to 
pass a loan, makes it very difficult to obtain loan 
appropriations for urgent general purposes. 

While the borrowing of money directly for cur- 
rent expenditures has been stopped, a financial 
piactice has prevailed to some extent in this city 
which has indirectly involved the same violation 
of the principles of sound finance. It is obvious 
that if money is boiTowed for the term of twenty 
years, and expended upon a work of construction 
which will only last ten yeai's, and will have to 
be renewed at the end of that time, the power 
of borrowing is indirectly used to meet current 
demands. For example, if the sum of $100,000 
is borrowed this year, for a term of twenty years, 
for the reconstruction of street surfaces which 
will have to be renewed at the end of ten years, 


out of the proceeds of another twenty-year 
loan, the city will still owe, when the jfii'st loan 
is paid oflF at maturity, the half of the second 
loan not covered by the sinking fund provided for 
its redemption. Thus after the street surface has 
been renewed for the third time, the city will 
still be paying, for the further period of ten years, 
a part of the expense of the second renewal. 

The only legitimate purpose of a loan is to 
distribute over a term of years the cost of 
some construction which will last at least for the 
same period, or of some work which has to be 
done only once during such period. Sufficient 
attention does not seem to have been paid in 
the past to this essential principle of sound 
municipal finance. In order to conform to this 
principle, the term of the loan passed last 
year providing for the street department ward 
improvement appropriation was reduced from 
twenty years to ten. It would be advisable to 
have some official estim^ite made by the city 
engineer of the probable life of every separate 
piece of construction work provided for by loan, 
and to have the term of the loan limited to this 
period ; while there are some complications in 
the way of following this procedure in the case 
of every item in a loan appropriation, I shall 
endeavor to inaugurate such a system. 


During the past year the idea of materially 
shortening the term of any additional loans out- 
side of the debt limit, in order to avoid further 
mortgaging of the resources of the city for a 
"long term of years, was presented by me in con- 
nection with the financial provisions for meeting 
the expenses imposed upon the city for making 
the street changes required in the neighborhood 
of the new southern union station. Under the act 


providing for this station the bonds issued to pro- 
vide the means to meet the portion of the expense 
borne by the city cannot run for a longer term than 
five years. In this manner the expense of securing 
this great improvement, the whole of which will 
directly or indirectly come back to the city, is dis- 
tributed over the next few years, and there will be 
iio permanent increase on this account in the in- 
debtedness of the city outside of the debt limit. I 
believe that the example thus set should be followed 
in the case of any other loans which it may in the 
future be found necessary to issue outside of the 
debt limit, for improvements which are not expected 
to bring in a direct revenue to meet their cost. 

In view of the fact that the securities held in the 
sinking funds now consist wholly of the bonds of 
the city itself, it would tend to simplify our debt 
statements, and would show more truly the financial 
position of the city, if all of our bonds so held 


could be cancelled, making the gross debt and the 
net debt the same. A bill for accomplishing this 
object has been prepared by the corporation counsel, 
and the practicability and desirability of making this 
change, or otherwise altering the present sinking- 
fund system, has been referred to the Merchants' 
Municipal Committee. 

If the valuation of our taxable property con- 
tinues to increase at the same ratio as it has 
for the last few years, the city will be able 
at the end of five years to raise annually, under 
the $9 tax limit, some $1,200,000 more than at 
present. I believe that we should adopt the finan- 
cial policy of trying to keep the expenditures 
of most of the departments as nearly at their 
present figure as possible, in order that the 
greater part of this increase in current revenue 
may be given to the street department, where it 
is most urgently needed, and will be productive 
of the greatest public benefits. 

At present there is no central supervision of 
the methods of accounting and book-keeping in 
use by the different departments of the city, nor 
is there any regular examination of accounts for 
the pui'pose of verification, except the annual 
examination of the accounts of the treasurer and 
collector made under the direction of the city 
council. I believe that the auditor should be 


given the additional duty of supervising the keep- 
ing of all the books and accounts of the city, 
and causing them to be examined and verified 
at least as often as once a year. In short, the 
auditing department should be made a central 
accounting office, with comprehensive powers and 


The uninterrupted operation of the AVest End 
Street Railway system is a matter of vital im- 
portance to the public, and they are therefore 
interested in having the relations between this 
great corporation and its employees placed upon 
a stable and satisfactory basis. It seems to me 
that such stability can best be secured by the 
recognition, by the management of the company, 
of any labor organization, properly organized and 
conducted, of which the great mass of its 
employees become members, and by the renewal 
of some such agreement as was formerly in force 
between the company and its employees, defining 
the conditions of employment, and providing for 
the redress of cases of injustice to individuals. 


During the last year a much-needed loan ap- 
propriation, amounting to $10',000, was made for 
the improvement of Mt. Hope cemetery, and a 



further and larger sum should be provided for 
this purpose during the coming year. For busi- 
ness reasons, if for no others, this cemetery 
should be reasonably equipped, to compete, in the 
attractions offered, with private cemeteries. I am 
satisfied that the investment of a further reason- 
able sum of money in this cemetery will bring 
a considerable return to the city. The want of 
a chapel is now greatly felt, and this at least 
should be provided as soon as possible. Under 
the present board of trustees the cemetery has 
been carefully and conscientiously managed, and 
good results have been secured. It would in my 
opinion be very desirable to place this board upon 
a more stable basis than is possible under the 
present annual appointment of all its members. 


Boston is very deficient in respect to the pro- 
vision of public lavatories, and it is highly impor- 
tant that steps should be taken as soon as possible 
to meet the wants of the people in this direction. In 
London, and in some of the cities of continental 
Europe, underground lavatories, placed at points 
where there is the greatest confluence of travel, 
have been conducted with marked success, and 
by a small charge for the use of some of the 
privileges furnished have even been made more 


than self-supporting. It was not deemed practi- 
cable to make provision for such lavatories in 
connection with the stations on the line of the sub- 
w^ay, and it is necessary that some proper accom- 
modations of this character should be supplied in 
their immediate vicinity. I recommend an appro- 
priation sufficient to enable one of these under- 
ground lavatories to be placed at some suitable 
point, in order that this plan of construction may 
receive a practical trial. 


I believe that the city could, "* with adyantage, 
establish and maintain, under the board of health, 
a fully equipped municipal laboratory, for making 
the tests of various articles necessary to determine 
whether they conform to the requirements of the 
laws, and for deteiinining, by chemical analysis, 
the quality, and freedom from adulteration, of the 
large amount of food and supplies of all sorts 
purchased by the city for the use of the vari- 
ous departments. Modern science has placed 
at our command the means for readily secur- 
ing exact information as to the composition of 
almost every article; and the systematic exami- 
nation and testing, by a single officer, of every- 
thing used by the city, together with the making 
of such official analyses as might seem desirable 


for the protection of our people in their purchases 
of common articles of consumption or use, would 
be productive of valuable results. A considerable 
amount of the work which would come under such 
a laboratory is already done by or for the city; 
but it seems to ipe that there would be impor- 
tant advantages in consolidating and systematizing 
this work, and affording facilities for its extension. 


The subject of securing the housing of its 
people in suitable buildings, and preventing the 
erection or continuance of unsanitary or improper 
tenements, is one which should engage the atten- 
tion of every enlightened municipality. A law 
has recently been enacted by the state of Xew 
York which gives the local board of health power 
to condemn and destroy any unsanitary buildings, 
leaving the land in the hands of the owner, and 
giving him compensation only for the value of 
the buildings. This statutory provision seems to 
me an important and valuable one, as it enables 
action to be taken in cases where the expense 
of condemning both land and buildings would 
be prohibitory. I shall endeavor to secure the 
passage of a similar measure at the present session 
of our legislature. 



During the last year the city treasurer received 
a bequest of $50,000 under the will of George 
L. Randidge, the income of which sum is to be 
used for the purpose of " affording to the children 
of the poor of the city, of all religious denomi- 
nations, the pleasure of one or more excursions 
during the months of July and August in each 
year." One year's income of this bequest, amount- 
ing to the sum of $2,000, will be available next 
summer, and every effort will be made to expend 
it in such a manner as to give the greatest 
amount of enjoyment, in conformity with the 
beneficent intentions of the donor. I am glad 
to take this opi)ortunity to express the city's 
appreciation of this unusual but admirable bequest, 
and the hope that the worthy example set by 
Mr. Kandidge may be followed by others. The 
growing recognition of the idea that a municipality 
can properly engage in efforts to promote the 
social well-being and enjoyment of its citizens, 
particularly of children, will be promoted by this 
gift, and the name of the donor will be perpet- 
uated in kindly remembrance. 



No further steps have been taken during the 
year in regard to the application of the Franklin 
fund, now amounting to over $350,000, owing 
to the doubt which exists as to who aye 
entitled to act as the trustees of the fund at 
the present time. A petition has been presented 
to the Pi'obate Court to have this question de- 
termined, and the case has just been argued, but 
it may have to be taken to the Supreme Judi- 
cial Court for final determination. The imique 
and interesting character of this bequest, as well 
as its substantial amount, makes it of great public 
interest that it should be applied in general har- 
mony with the purposes of Franklin, and in such 
a manner as to constitute a worthy monument 
to his memory. 


Early in the year the sum of $10,000, from 
the income of the Phillips fund, was appropriated 
upon my recommendation for the execution of a 
proper statue of Colonel Cass, to take the place 
of the present unsatisfactory stone figure on the 
Public Garden. The commission was given by 
me to a young American sculptor now studying 
in Paris, who had satisfactorily executed a bust 
of Dr. Holmes for the public library. In the 


last loan bill I approved an item of $12,100 for 
the long-postponed statue of General Joseph 
Warren. The Warren Monument Association of 
Roxbury, formed many years since for the pur- 
pose of securing the erection of this monu- 
ment, has requested me to postpone for a few 
months the placing of the commission, in order 
that the appropriation may be added to, for the 
purpose of securing a more adequate memorial, by 
contributions which it is expected to raise from 
private individuals. 


A plan for the improving of Copley square — 
which, in spite of the diyersity in the architecture 
of the buildings surrounding it, undoubtedly ranks 
as the finest square in the city — was prepared 
some time since under a competition instituted by 
the Boston Society of Architects. A committee of 
that body has recently brought this matter to my 
attention; the carrying out of some such plan 
would immensely benefit the appearance of this 
square, and would be, from an artistic standpoint, 
one of the best improvements which the city could 
make. The expense of such a scheme would not 
be great, considering the valuable result that would 
be secured. 



Another year has passed without the provision 
of a rifle range for the use of the militia, as re- 
quired by law, in spite of the fact that the selection 
of a suitable site for this purpose has received a 
good deal of attention at the hands of the board 
of aldermen. There seem to be very few available 
tracts of land of the size required and suitably 
located, and after a good deal of investigation of 
the subject there seems to be general acquiescence 
in the conclusion that a suitable tract cannot be 
secured at a fair price, unless the city is given the 
right to take the land by right of eminent do- 
main. An application will be made to the legis- 
lature for the passage of an act for this purpose. 

After careful enquiry into the present accommo- 
dations of the two new armories and the need 
of increasing them, I gave my approval to a loan 
appropriation of $125,000 for their improvement, 
after arriving at an understanding with the state 
armory commissioners as to the manner in which 
the money should be expended. It seems to me 
that the interest taken by the membei'S of the 
militia in their work, and the time and money 
which they contribute to it, makes it incumbent 
upon the city to furnish all reasonable accom- 
modations in the armories. 



Free public concerts in the open air, which 
were omitted during the year 1895, were resumed 
last year. For a total expenditure of $5,000 
sixty-eight concerts were given, forty-six on week- 
day evenings in various parts of the city and 
twenty-two on Sunday, — eleven of the latter 
on the Common and eleven at Marine Park. 
These concerts were satisfactorily given by the con- 
tractors, and were largely attended and enjoyed 
by the public. I believe that a moderate expen- 
diture for this purpose is a wise one, and I 
recommend a continuance of such concerts during 
the coming year. 


The city already owns most of the islands in the 
harbor, and it seems to me that there are strong 
considerations in favor of bringing under public 
ownership those now in private hands. There are 
many special municipal purposes for which these 
islands are likely to be wanted in the future, 
and it is also important to prevent them from 
being put to undesirable uses. The city and the 
federal government together should control all of 



The subject of having more care and attention 
devoted to the shade trees in the public streets, 
and of having some special appropriation made for 
this purpose, has lately been brought before the 
city government. Such trees take a long time 
to grow and cannot be replaced, and they should 
be regarded and cared foi* as valuable public 
possessions. The leakage of gas from pipes, in 
the streets has killed some good trees. 


In the revision of the ordinances recently pre- 
pared it was provided that every advertisement 
required should be inserted — without, however, 
excluding publication in other newspapers — in the 
newspaper in which the proceedings of the city 
council are reported. In harmony with this provis- 
ion, an executive order has been issued to heads 
of departments that every advertisement given out 
by them shall be published in like manner. It 
seems to me that it should prove a decided 
convenience to persons doing business with the 
city to know that they can find in the columns 
of a single newspaper every official municipal 
announcement, while any advertisement may be 
given as wide publicity as may seem necessary by 
inserting it in other newspapers. 



The historical associations of Faneuil hall make 
it one of the most vaUied possessions of the city, 
and require that it should be protected in every 
I)OS8ible way against the danger of destruction by 
fire. The occasional use of stoves for cooking inside 
the building, which was formerly allowed, has been 
discontinued; but nothing short of considerable re- 
construction of the inside, with fire-proof materials, 
will aff'ord the requisite protection. The armory of 
the Ancient and Honorable Artillery Company in 
the upper story of the building, containing valu- 
able relics, is peculiarly exposed to danger from 
fire, and a connnittee has been ap|)ointed by this 
body to urge the necessity of fire-proofing. I rec- 
ommend that an ai)propriation suflScient for the 
purpose be made as soon as possible. 


Some of the ward-rooms owned or leased by 
the city are entirely inadequate in theii* accom- 
modations. I believe that every ward in the city 
should be provided with an adequate and proper 
ward-room for the holding of caucuses and other 
public meetings, and I recommend a sufficient 
appropriation this year to enable at least the 
worst deficiencies in this direction to be remedied. 



At the last session of the legislature there 
were passed forty special acts affecting Boston. 
One of the most important duties of the mayor, 
while the legislature is in session, is to follow 
closely all pending measures affecting the city, to 
advocate those which seem to him proper, and to 
oppose others. As long as matters which ought, 
in theory at least, to be left to the local legis- 
lative body to deal with are so largely regulated 
at the state house, the city government should 
at least make itself heard as often as occasion 
may require. The new constitution of the state 
of Jfew York provides that no special measure 
affecting a city shall be finally passed until after 
a hearing before the mayor of such city, and the 
return of the measure either approved or disap- 
proved by him, a two-thirds vote being required 
to pass it in case of his disapproval. Even 
without a provision of this character, I believe 
that the mayor of this city should keep a close 
watch upon every legislative measure specially 
affecting its interests. 



In view of the fact that executive business 
cannot now be regulated by ordinance, it seems 
to me desirable thai a code of regulations should 
be drawn up and put in force by the mayor, pre- 
scribing rules for the government of the various 
executive departments. Such a body of regula- 
tions would not only give convenient information 
to the public as to the prescribed conduct of 
business by oflScials of the city, but would also 
establish a permanent body of rules, which could 
be added to from time to time, governing the 
conduct of executive business, in the same manner 
as the ordinances operate within their sphere. Of 
course a mayor could only give effect to such a 
code during his own term of office; but if regula- 
tions were found satisfactory in practice, they 
would doubtless be continued in force by his 

A year ago I said that the considerable changes 
which had been eflfected in recent years in the or- 
ganization of the executive branch of the city gov- 
ernment had placed the administrative machinery 
upon such a basis that the securing of its most 
effective operation was more important than that 
of securing further organic changes. A year's ex- 
perience has decidedly confirmed me in this opin- 
ion. The executive organization of the city of 


Boston is to-day, upon the whole, an admirable one ; 
and it is the fault of men, rather than of sys- 
tems, if it fails to produce good results. The 
changes effected by the provisions of the charter 
amendment act of 1895 have been entirely satis- 
factory in their operation. The substitution of 
single commissioners for boards at the head of the 
water, fire, and institutions departments has, in my 
opinion, resulted in the expected advantages. 

In exercising the power of appointing heads of 
dei)artments, vested in the office of mayor, I have 
endeavored to fulfil my promise ^^not only to 
maintain, but to advance, the existing standard 
of capacity and efficiency." I trust that I may, 
without overstepping the bounds of due mod- 
esty, express the satisfaction which I feel in the 
body of men, taken as a whole, api)ointed by me to 
official positions. I am glad to take this occasion 
to recognize the fidelity, zeal, and intelligence with 
which they have performed their respective duties, 
many of them of a difficult character. The success 
or failure of every municipal administration, at least 
so far as the performance of routine duty is con- 
cerned, must depend not upon the mayoi-, but upon 
the officials under him. The city is also fortunate 
in enjoying the services, in many important posi- 
tions, of old officials of ripe experience and large 


Gentlemen of the City Council : 

The people of Boston, which is so fast as- 
suming the character of a great nietropohtan 
centre, have intrusted to us interests of vital 
importance to their welfare. We cannot appre- 
ciate too fully the magnitude of this trust, or 
cooperate too zealously in meeting its obligations. 
The conditions of the cities of the old world 
are different from ours. We are engaged in 
working out the problem of governing a great 
community under a voting franchise based upon 
universal suffi-age. It is our privilege to show 
the world that the free institutions of America 
— even when submitted to the crucial test of mu- 
nicipal government — are capable of producing 
results not inferior to the best that can anywhere 
be obtained. It should be om* honorable ambition 
to attempt to place om* beloved city at the head 
of American municipalities, in all that is worthy 
and of good report. 


out MAR 251922 

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